County Durham Plan Preferred Options 2018
Contents
Foreword 4 1 Introduction 6 Stages of Local Plan Preparation and Next Steps 7 How do I get involved? 7 Neighbourhood Plans 8 Assessing Impacts 9 Duty to Cooperate: Cross-Boundary Issues 10 Monitoring 10
2 What the County Durham Plan is seeking to Achieve 11
3 Vision and Objectives 14 Delivering Sustainable Development 17 General Development Principles 19 Policy 1 - General Development Principles 19
4 How Much Development and Where 22 Quantity of Development (How Much) 22 Policy 2 - Quantity of Development 22 Spatial Distribution of Development (Where) 30 Distribution of Employment 30 Policy 3 - Employment Land 30 Policy 4 - Aykley Heads 38 Distribution of Housing 43 Policy 5 - Housing Allocations 47 Policy 6 - Durham City's Sustainable Urban Extensions 61 Policy 7 - Development on Unallocated Sites in the Built Up Area 68
County Durham Plan Preferred Options Contents
5 Core Principles 70 Building a strong competitive economy 71 Durham University 71 Visitor Economy Introduction 72 Policy 8 - Visitor Attractions 73 Policy 9 - Visitor Accommodation 75 Ensuring the vitality of town centres 77 Policy 10 - Retail Hierarchy and Town Centre Development 78 Supporting a prosperous rural economy 84 Policy 11 - Development in the Countryside 85 Policy 12 - Rural Housing and Employment Exception Sites 89 Policy 13 - Permanent Rural Workers’ Dwellings 91 Policy 14 - Equestrian Development 93 Policy 15 - Best and Most Versatile Agricultural Land and Soil Resources 95 Delivering a wide choice of high quality homes 97 Policy 16 - Addressing Housing Need 97 Policy 17 - Durham University Development, Purpose Built Student 104 Accommodation and Houses in Multiple Occupation Policy 18 - Sites for Travellers 115 Policy 19 - Children's Homes 117 Policy 20 - Type and Mix of Housing 119 Protecting Green Belt land 122 Policy 21 - Green Belt 123 Policy 22 - Non-Strategic Green Belt Amendments 125 Delivering Sustainable Transport 127 Policy 23 - Delivering Sustainable Transport 128 Policy 24 - Durham City Sustainable Transport 132 Policy 25 - Allocating and Safeguarding Transport Routes and Facilities 138 Policy 26 - Provision of Transport Infrastructure 141 Supporting high quality infrastructure 143 Policy 27 - Developer Contributions 144 Policy 28 - Green Infrastructure 146 Policy 29 - Utilities, Telecommunications and Other Broadcast Infrastructure 148 Policy 30 - Safeguarded Areas 151 Requiring good design 154 Policy 31 - Sustainable Design in the Built Environment 154 Promoting healthy communities 158 Policy 32 - Hot Food Takeaways 158 Policy 33 - Amenity and Pollution 160 Policy 34 - Despoiled, Degraded, Derelict, Contaminated and Unstable Land 164 Meeting the challenge of climate change, flooding and coastal change 166 Policy 35 - Renewable and Low Carbon Energy 167 Policy 36 - Wind Turbine Development 169 Policy 37 - Water Management 174 Policy 38 - Water Infrastructure 176 Policy 39 - Durham Coast and Heritage Coast 180 Conserving and enhancing the natural and historic environment 183 Policy 40 - North Pennines Area of Outstanding Natural Beauty 184 Policy 41 - Landscape Character 186
County Durham Plan Preferred Options Contents
Policy 42 - Trees, Woodlands and Hedges 190 Policy 43 - Biodiversity and Geodiversity 193 Policy 44 - Internationally Designated Sites 195 Policy 45 - Protected Species and Nationally and Locally Protected Sites 198 Policy 46 - Historic Environment 201 Policy 47 - Durham Cathedral and Castle World Heritage Site 205 Policy 48 - Stockton and Darlington Railway 208 Minerals and Waste 209 Policy 49 - Sustainable Minerals and Waste Resource Management 212 Policy 50 - Safeguarding Minerals Sites, Minerals Related Infrastructure and 214 Waste Management Sites Policy 51 - Meeting the Need for Primary Aggregates 217 Policy 52 - Brickmaking Raw Materials 229 Policy 53 - Surface Mined Coal and Fireclay 232 Policy 54 - Natural Building and Roofing Stone 235 Policy 55 - Reopening of Relic Natural Building and Roofing Stone Quarries 238 Policy 56 - Safeguarding Mineral Resources 239 Policy 57 - The Conservation and Use of High Grade Mineral Resources 241 Policy 58 - Preferred Area for Future Carboniferous Limestone Working 243 Policy 59 - Strategic Area of Search to the South of Todhills Brickworks 245 Providing for Waste Management Capacity 246 Policy 60 - Waste Management Provision 246 Policy 61 - Location of New Waste Facilities 251 Appendices A Strategic Policies 254
B Coal Mining Risk Assessments and Mineral Assessments 255
C Safeguarding Mineral Resources and Safeguarded Minerals and Waste Sites 259
D Glossary of Terms 275
County Durham Plan Preferred Options County Durham Plan Preferred Options
Foreword
It’s been just over a year since I took over as Cabinet member for regeneration and economic development and in that time I have experienced first-hand the many issues and opportunities that exist for the county.
Austerity has certainly had an impact on some of our more deprived communities and in particular welfare reform and changes to housing benefits. Like the rest of the country we are seeing increasing demands on public services - and the pressure this places on our communities - an ageing population and significant changes in our local economy with high street banks, shops and pubs struggling.
However there is much to be positive about in County Durham. I have spoken to businesses, developers and investors who are bringing forward exciting and significant opportunities, creating much needed jobs and training for our residents. But even better is that we’re seeing this right across our county with Auckland Trust’s exciting developments in Bishop Auckland including the world class event at Kynren, the opening of Forest Park at Newton Aycliffe, investment at the former Hawthorn Pit now renamed Jade at Murton and the exciting opportunities resulting from a new approach at Integra 61 at Bowburn to name just a few.
Durham City is currently undergoing one of its biggest transformations for many generations. The developments on the riverside will provide new destinations for the city adding to the already fantastic offer available. This will include bringing new cinemas and restaurants to Durham along with city centre living and offices, as well as the jobs that they create. The growth of the university is something I believe will have many positive impacts bringing new businesses, increasing entrepreneurship and enhancing our research and development and scientific base.
The council itself is in the process of moving its headquarters from Aykley Heads giving the opportunity for what is seen as a once in a generation opportunity to create a new high-tech business park that we hope will eventually create up to 6,000 jobs.
But it’s vital that we continue to appreciate that this is a small city and any development must be of the highest quality, fit into Durham’s environment and not impact on what makes the city special.
I therefore think the County Durham Plan (the Plan) we are presenting takes us a long way in delivering on some of the key issues I hear from our residents. Delivering not just more jobs but better paid jobs with better prospects and providing the homes across the county that will meet the needs of our residents as well as their aspirations. Importantly it seeks to build on the current pipeline of investment into the county which is estimated at over £3 billion and ensure that the confidence is there to deliver these improvements for the benefit of residents of County Durham.
The Plan also seeks to ensure that the needs of our rural communities are met, Brexit presents uncertainty right across our county but no more so than in our farming communities. We therefore have flexible polices and encouragement for all businesses to develop, recognising in particular the opportunities that the increasing visitor economy will have in the future.
Infrastructure is a key element of the Plan and we need to ensure that together with the new homes we get the necessary education, health and social provision as well as improved transport links.
One of the county’s biggest selling points, apart from its people, is the quality of place and life. Our coast, our dales, Durham City and the Cathedral and our landscape are all assets which we need to continue to protect and enhance.
While the plan should not be seen as the answer to all of our problems, it seeks to create the conditions and the framework for an ambitious and deliverable future for our residents and businesses.
4 County Durham Plan Preferred Options County Durham Plan Preferred Options
I am therefore extremely pleased to support the plan which offers significant hope to our young people, more support for our older people and confidence to our businesses. All whilst protecting and enhancing the environment in which we live.
But it’s vital that you let us know what you think, The Plan looks forward to 2035 so we are asking you to help shape the future of the county for you and your community.
Cllr Carl Marshall
County Durham Plan Preferred Options 5 County Durham Plan Preferred Options
1 Introduction
1.1 A local plan seeks to guide the future development of a place to improve the lives of its existing and future residents. We therefore need a local plan that meets the differing needs of our communities. The county has seen some successful regeneration in the past but our overall economy is the weakest in the North East, itself the poorest performing economy in England. We therefore need an ambitious local plan that promotes quality of life, provides jobs for a flexible and skilled workforce, protects and enhances our special environment and supports our towns and villages.
1.2 Without a local plan, development including housing, will still happen given the context of a growing population and a national housing shortage. The County Durham Plan will therefore give us the ability to guide and direct where it goes and what it looks like.
1.3 This is the second stage of consultation on the Plan which will provide the policy framework for the county up to 2035 to support the development of a thriving economy so that our residents can experience the benefits that ensue as a result. It is important that local communities, interested people and groups get involved and have their say to help shape the future of County Durham. This document sets out how many new homes and jobs we need to plan for and where they will go, what infrastructure we need and how we can protect our important landscapes and habitats.
1.4 The National Planning Policy Framework (NPPF) requires all councils to produce a local plan and keep it up to date. Since Local Government Review in 2009 we have been using saved policies from the existing local plans produced by the previous local authorities. Without an up-to-date local plan, the council has much less influence over the location of new development and the provision of infrastructure. As a result sites are being promoted for development in locations that the council and its communities want to protect. Not having an up to date local plan therefore creates uncertainty and makes it harder to resist inappropriate development and secure new infrastructure such as schools and health facilities.
1.5 The County Durham Plan must be prepared in accordance with the NPPF. A consultation on revisions to the NPPF has just recently concluded. As much of the content has already been consulted on previously we have thought it sensible to utilise wording form the draft NPPF in the Preferred Options. We do recognise that the draft NPPF may change post consultation and therefore any changes needed to reflect the final published NPPF will be picked up in the Submission Draft Version of the Plan.
1.6 Government continues to stress the need for economic and housing growth in all areas and has stated that if councils do not deliver this by way of a local plan then the Government could potentially intervene in that area. The new local plan is the opportunity for local communities and stakeholders to plan for how County Durham should grow and improve.
1.7 In a local context the Plan should have regard to the Sustainable Community Strategy (SCS) which is the overarching strategy for County Durham and is published by the County Durham Partnership. It sets out our shared long-term vision for the county, our ambitions for the area and the priorities that partners and communities believe are important. It provides the blueprint to deliver long lasting improvements and sets the scene for the Plan.
1.8 In addition to the Plan there will be one other future document. The Minerals and Waste Policies and Allocations Document will be prepared to complement the strategic minerals and waste policies in this Plan. It will contain detailed development management policies and any non-strategic minerals and waste allocations which are considered necessary to meet the future needs of County Durham and make an appropriate contribution, if necessary, to wider regional and national needs for mineral
6 County Durham Plan Preferred Options County Durham Plan Preferred Options
supply. Once adopted the policies and provisions of the Minerals and Waste Policies and Allocations document will replace the remaining saved policies of the County Durham Minerals Local Plan 2000 and the saved policies of the County Durham Waste Local Plan 2005.
Stages of Local Plan Preparation and Next Steps
1.9 The timetable for preparing the Plan with details on key stages of public consultation is summarised below. The detailed timetable is set out within our Local Development Scheme which is available to view online at: www.durham.gov.uk/cdp. Following this Preferred Options stage some further evidence will be prepared where required and any comments received will be considered to help us prepare the Submission Draft. The Submission draft will be published for further consultation and the comments received at that stage will then be forwarded on to an appointed Planning Inspector following formal Submission of the Plan for an Examination in Public.
How do I get involved?
1.10 Consultation on the Issues and Options took place between 24th June and the 8th August 2016. A total of 4,929 responses were received from 823 respondents. The Issues and Options sought comments on 50 specific questions although comments were able to be made on all aspects of the document. The council welcome the significant level of response received and has carefully considered all of the comments made and taken them into account in preparing the Preferred Options. A summary of the representations made and the council’s response is set out in a Statement of Consultation which is available on our website.
County Durham Plan Preferred Options 7 County Durham Plan Preferred Options
1.11 We now encourage everyone to get involved with this stage of the preparation of the County Durham Plan. For more information on the Preferred Options consultation please visit our website at: www.durham.gov.uk/cdp
1.12 You can send responses in a number of ways, but we would like to encourage you to submit your views online, via our consultation website: www.durham.gov.uk/cdp
1.13 This method should save you time and it will allow us to process and consider your comments more quickly. We hope that you will find the website quick and easy to use. Once your comments have been submitted they will be processed and added to the interactive website following the end of the consultation where you will also be able to see what comments have been made by others. Names will be made available, unless we are notified otherwise. In order to protect your privacy all other information you provide when registering will not be open to public view. All of your comments will however be publicly available so please ensure that you do not include any personal details, such as your address within your comments. Responses can also be sent by email to: [email protected].
1.14 A response form is also available for download from the website. If you do not have access to the Internet, please respond in writing to: FREEPOST SPATIAL POLICY. No further information is required on the address.
1.15 You can also call the Spatial Policy Team with any questions, to request hard copies of the documentation or to request further information on: 0300 026 0000.
1.16 The Preferred Options and other supporting documents will be published on our website from the 5th June 2018 and the formal consultation begins on the 22nd June 2018. All comments should be submitted to us by 4.30pm, 3rd August 2018.
1.17 The council will share details in line with the Spatial Policy Privacy Notice and when required to do so by law and/or statutory regulations in producing the development plan and planning policy documents. Any information and personal data will be retained securely and in line with Durham County Council's retention guidelines.
Neighbourhood Plans
1.18 Town and Parish Councils, or constituted community organisations (Neighbourhood Forums) have the ability to prepare further plans and orders that complement the Plan. These powers were introduced to enable communities to get more involved in planning for their areas and consist of the following:
Neighbourhood Plan – provides local policies for development and use of land in a neighbourhood;
Neighbourhood Development Order – enables Town and Parish Councils to grant planning permission for certain types of development without the need for people to apply to the County Council; and
Community Right to Build Order – enables small scale development in communities such as housing or community facilities.
1.19 These tools are designed to be used positively to support planned growth in a local area and build on, and conform with, the strategic needs set out in a local plan, including through additional site allocations. They must also conform with national policy and guidance. We will work together with communities who are developing their community-led plans alongside the Plan, to make sure they complement each other. Once a Neighbourhood Plan has been finalised and following an
8 County Durham Plan Preferred Options County Durham Plan Preferred Options
examination by an appointed examiner, a referendum is held in the neighbourhood area it covers. If it is approved by the community then it will form part of the development plan and be a key material consideration in the determination of planning applications.
Assessing Impacts
Sustainability Appraisal
1.20 Sustainability Appraisal (SA) is a statutory process integrated into the preparation of all aspects of a local plan. The process assesses the potential impacts of policies and allocations against a range of economic, social and environmental considerations and includes the requirements of Strategic Environmental Assessment legislation. The SA advises on ways in which any adverse effects can be avoided, reduced or mitigated or how any positive effects could be maximised. This helps to shape the Plan and ensure that it is promoting sustainable development. You can give us your views on the Preferred Options Sustainability Appraisal using the methods set out in the 'How do I get involved?' section.
Habitat Regulation Assessment
1.21 Habitats Regulation Assessment (HRA) is integral to the development of land use plans such as the County Durham Plan as it provides a statutory process(1) to assess the potential impact on Natura 2000 sites. Natura 2000 sites are of exceptional importance in respect of rare, endangered or vulnerable natural habitats and species within Europe. These include Special Protection Areas (SPAs) designated under the EU 'Wild Birds' Directive, Special Areas of Conservation (SACs) designated under the EU 'Habitats Directive', and European Marine Sites (EMS). As the Habitats Directive applies the precautionary principle, plans can only be adopted if no adverse impact on the integrity of site(s) in question is proven. To ascertain this a Screening Assessment, followed by an Appropriate Assessment, where necessary, must be undertaken. You can give us your views on the Preferred Options HRA Screening Assessment using the methods set out in 'How do I get involved?' section.
Equality Impact Assessment
1.22 Undertaking an Equality Impact Assessment (EQIA) allows us to assess any risk of discrimination before introducing new policies. Sometimes certain groups, such as Gypsies and Travellers or older people, will be treated differently to ensure that they are not unfairly impacted or that their needs such as in respect of housing can be met. An EQIA has been undertaken for this Preferred Options stage and will be built into the development of the policies and proposals as the Plan evolves. A further EQIA update will be carried out after the consultation, to ensure that groups have been reached and their views listened to.
Health Impact Assessment
1.23 The Plan plays a key role in shaping the physical environment which can have a significant impact on health and well-being by making it possible for people to make healthier lifestyle choices. To ensure that health considerations have been embedded into the Preferred Options, health considerations have been included as a key part of the Sustainability Appraisal process. A full Health Impact Assessment will be undertaken with public health colleagues to inform the next stage of County Durham Plan process. This will consider further opportunities to protect the health of our residents through successful plan-making, accounting for housing, open space and sustainable transport.
1 In accordance with Conservation of Habitats and Species Regulations 2010 (http://www.legislation.gov.uk/uksi/2010/490/contents/made), which transposes the EU Habitats Directive, (http://ec.europa.eu/environment/nature/legislation/habitatsdirective/index_en.htm).
County Durham Plan Preferred Options 9 County Durham Plan Preferred Options
Duty to Cooperate: Cross-Boundary Issues
1.24 One of the changes brought about by the Localism Act is the introduction of the Duty to Co-operate with neighbouring authorities and key stakeholders when preparing plans. County Durham borders a number of county, district and unitary councils and a National Park Authority. Regular liaison meetings will continue to be held with neighbouring councils to inform plan preparation and to ensure that issues of common concern are identified, taken into account and hopefully resolved as the local plan evolves. Notably, the council has developed working groups with the Tyne and Wear authorities and those in Tees Valley, where we have our closest interaction. We also have formal arrangements with authorities in Northumberland, North Yorkshire and Cumbria where specific issues such as minerals and waste are discussed. Our ongoing duty to cooperate work has also led to the development of cross boundary evidence bases in the past and has also led to the production of a Joint Local Aggregate Assessment with mineral planning authorities in both Northumberland and Tyne and Wear. Other meetings with statutory consultees such as Historic England and Natural England will also continue throughout the process.
1.25 As an outcome of this co-operation we will seek to recognise the economic, social and environmental linkages with neighbouring areas and ensure particular issues are understood and resolved wherever possible. Similarly this process will allow County Durham to influence the local plans of our neighbours.
Monitoring
1.26 Monitoring the success of the Plan will be important to ensure it is being delivered and remains effective. It also indicates when policies may need to be reviewed in response to changing circumstances. An Annual Monitoring Report will therefore be produced to measure the effectiveness of our policies.
Monitoring Areas
1.27 In order to aid monitoring and discuss issues across an area the size of County Durham, with its many different communities, it is useful to break the county down into geographical areas which have similar characteristics in terms of their housing, economy and history. We have therefore identified nine monitoring areas which will assist in measuring the success of the Plan's policies. In reality, the boundaries between these areas are not distinct and in some cases issues overlap as they are not physically discrete. The general extent of the monitoring areas is shown below.
10 County Durham Plan Preferred Options County Durham Plan Preferred Options
County Durham Plan Monitoring Areas
2 What the County Durham Plan is seeking to Achieve
2.1 The ambition for County Durham is to build a successful and sustainable future in which all of its residents have the opportunity to access good housing and employment in an environment which delivers a healthy and fulfilled lifestyle.
2.2 The strategy, by understanding the opportunities and needs of all our people as well as the towns and villages to which they belong, seeks to focus on delivering more and better jobs; the delivery of a wide choice of quality homes meeting needs and in locations that reduce the need to travel and where people want to live; protecting and enhancing our high quality built and natural environment; and ensuring that the key infrastructure required to support this growth such as transport, health and education is delivered alongside any future development.
2.3 County Durham has seen encouraging economic growth in recent years with a significant year on year net increase in new jobs being created. This has been possible with the development of key emerging industries, the opening up of strategically important sites and a pipeline of investment at an all-time high. The continued success of Durham University, an increasing diversity in science and high tech industries as well as significant growth and excitement in developing a national and international tourism offer based on the county’s heritage, culture and natural beauty, all add to this growing confidence.
2.4 Over the past nine years County Durham has started to turn its economy around, promoting a confident approach to maximising the opportunities that exist in the county. It has attracted investment not usually associated with the county’s economic profile and is now seen as a key regional contributor to the economy, as exemplified by a commitment and clear pipeline of investment and projects.
County Durham Plan Preferred Options 11 County Durham Plan Preferred Options
2.5 Despite this significant potential for continued success, the county does continue to lag behind national and regional indicators in respect of employment and wages. In response the County Durham Plan sets out an ambitious but deliverable vision to build on this optimism and capitalise on the range of opportunities which exist to move the county forward through the Plan period to 2035.
2.6 The many existing locational advantages of County Durham, including the A1(M), A19, and the East Coast Main Line, provide ease of movement to the rest of the region and country. This, coupled with good access to ports on the North East coast and to three airports within one hour of travelling time provide direct links to Europe and the rest of the world. The A1 and A19 in particular have seen significant investment over the last five years as well as having supported Durham’s manufacturing firms in respect of the exporting of goods and expertise.
2.7 We have a strong rural economy with some significant industries located within our rural areas, which we need to continue to support to enable their growth and continued success. The rural economy is largely dependent around farming and food production for which the Plan needs to be sufficiently flexible to allow this sector to diversify and remain resilient.
2.8 We also have a number of main towns such as Barnard Castle, Consett, Stanley, Bishop Auckland and Crook which all provide a key location for local and regional businesses contributing to the employment base and local economy.
2.9 Tourism across the county continues to grow year on year with new attractions developing in the Durham Vale, rural west and east coast. The ongoing roll out of broadband provides a significant opportunity for new industries and businesses to locate in rural areas and for home working to become a viable option too. These sectors can all provide sustainable employment and future opportunities meaning Durham’s economy is well positioned to grow. To enable this it is vital to have flexibility in our policies; the necessary infrastructure to strengthen the opportunity and meet the needs of our communities balanced against respecting the amenity, character and beauty of the places where they are proposed.
2.10 Previous plan strategies for the county have largely focused on the regeneration priorities at that time, a series of Government regeneration initiatives largely defined the planning strategy aimed at reversing decline with significant public funding available to mitigate the historic collapse of heavy industry and the impact this had on residents and communities evidenced by some of the worst health and deprivation indicators in the country. The public sector remains important to the success of the county however this Plan proposes better co-operation and an improved understanding of private sector investment and business in the face of reduced public sector funding. This process of change is well underway with many positives now realised; the Plan therefore seeks to build on this momentum, providing further confidence in the economy and ensuring that the needs of our residents are met.
2.11 Key employment sectors within the county include finance and advanced manufacturing, in particular the automotive and transport industries, healthcare, construction and utilities and communications. Research and development also have a strong presence, with some as a result of tapping into Durham University’s ambition to work harder for the benefit of the county.
2.12 In allocating new development there is a need to ensure that both the site and the essential infrastructure required to support it are deliverable. Locating jobs in the most accessible and sustainable locations is a key objective of the Plan. Similarly allocating housing close to jobs and services in order to reduce the need to travel and ensuring that existing services are supported is fundamental to ensuring sustainable development. The Plan is also based on the principle of allocating brownfield land first wherever possible, then utilising sustainable greenfield sites, only then considering the release of Green Belt as a last resort and where exceptional circumstances exist. Indeed, a significant proportion of the housing required up to 2035 currently benefits from planning permission or is under construction.
12 County Durham Plan Preferred Options County Durham Plan Preferred Options
2.13 Regeneration has, in some areas, resulted in recent rapid housing growth which has seen much of the demand in these areas met, whilst in other cases there are sites which have been granted planning permission but have not started due to site issues or viability. As such, any new allocations must seek to increase the range and amount of new housing available and be located in strong market areas and/or where viability and sustainability indicate that the housing will be successfully delivered within the timescales to meet the identified needs of our communities. This approach is discussed in the section of this Plan entitled How Much Development and Where and reflects this by focusing primarily on areas which are both sustainable and deliverable, whilst taking account of pockets of low demand where the importance of facilitating any regeneration opportunities is vital. The result is that most large towns and villages contain an allocation or already benefit from an existing planning permission for housing which will help support their future vitality and will ensure that the range and choice of housing improves, meeting the needs of all of our residents and helping to support our economic ambitions
2.14 The historic nature of our town centres presents particular challenges in the context of retail development. Despite recent increases in the number of supermarket developments which have largely met convenience shopping needs, all town centres are suffering some level of decline with the numbers of vacant units and the growth of fast food takeaways affecting the experience and quality of our retail centres. Many are now too large and need to diversify with alternative uses to be considered. Whilst the evidence does not identify a specific need to identify new sites we will continue to support development which adds to their vitality and brings positive uses, to these centres. The Plan also includes flexible polices which will encourage our centres to deliver the services that support our communities by being safe and welcoming including being a focus for leisure and the night time economy.
2.15 County Durham has a wealth of natural resources with nationally significant mineral resources such as magnesium limestone. The Plan must protect these resources, ensuring that we contribute positively to the wider economy whilst at the same time protecting areas of particular importance and sensitivity. This balance can sometimes be difficult however our policies reflect an understanding of the impacts of mineral extraction on communities and the environment.
2.16 Our built and natural environment is as diverse as the communities that make up the county and includes a landscape that is celebrated and appreciated by visitors and residents alike. At Issues and Options stage it was made clear the extent to which County Durham residents and businesses value their built and natural heritage, and the Plan responds to that. A significant area of outstanding natural beauty, the Cathedral and Castle World Heritage Site, a heritage coast and the Durham Dales provide a backdrop to our towns and villages. Large swathes of high quality landscape means that you are rarely far from being in the countryside. Protection of these assets and the widespread and varied ecology runs right through the Plan.
2.17 Culturally the history of the Prince Bishops has helped to define many of the older settlements as well as the communities that live there. Over ninety conservation areas and well over three thousand listed buildings provide a history of Britain from roman through early Christianity to the birth of the railways and the start of the industrial revolution. Durham is proud of its heritage and the Plan seeks to protect and enhance all of these assets which make Durham a unique place.
County Durham Plan Preferred Options 13 County Durham Plan Preferred Options
3 Vision and Objectives
Spatial Vision
3.1 The key community priorities set out in the County Durham Sustainable Community Strategy (SCS)(2) draw upon the needs, expectations and aspirations of local communities, groups and partner organisations across the county. Looking to the end of the Plan period of 2035, we think the SCS Vision to create an 'Altogether Better Durham' is the starting point to inform the vision for the Plan. The spatial vision for the Plan needs to reflect the key challenges and issues facing the county:
Spatial Vision for County Durham
By 2035 County Durham will have a thriving economy, reducing levels of deprivation, social exclusion and joblessness with the associated health and quality of life improvements. It will also be bridging the gap between its economic performance and that of other parts of the North East and the rest of England. It will be a top location for business and tourism, capitalising on its strategic location on the A1(M), A19, A66, East Coast Mainline, its east/west links and its close proximity to Durham Tees Valley and Newcastle Airports.
The county will comprise of sustainable, balanced and regenerated communities, with key development being located to achieve sustainable patterns of development, ensure the effective use of land and reduce our contribution to climate change and support the vitality and vibrancy of existing centres. All communities and businesses will benefit from an accessible, integrated and sustainable transport system, resulting in increased public transport use and safe, well used and attractive cycling and walking routes.
The county will have an accessible, well designed range and choice of good quality housing, services and community facilities, complementing the area’s thriving economy and meeting the needs of all existing and future residents. At the heart of communities will be accessible green infrastructure, not only improving the quality of place but people's quality of life and reducing health inequalities. The county’s rural areas will be continuing to play a vital role in the county’s economy, employment and tourism, including through diversification and embracing the opportunities provided by improved broadband connectivity.
The county will continue to be renowned for its diverse and high-quality natural, built and historic environment. This will be protected and enhanced by ensuring new development adheres to high standards of design and sustainability principles. This will ensure that our environmental resources are secured in the long-term, providing for sustained economic growth, a better sense of place and strong communities. Our environment, communities, businesses and transport infrastructure will be capable of adaptation and be resilient in the face of climate extremes supporting opportunities to establish a low carbon economy.
County Durham will continue to play its role and remain an important source of minerals. Its quarries will continue to produce the steady and adequate supply of minerals, as required. New or extended mineral workings will be guided to environmentally acceptable locations and carried out to the highest environmental standards. County Durham's waste will be viewed as a valuable resource and waste recycling will be an integrated part of daily lives. All our planning functions will aim to drive waste up the waste hierarchy and use resources efficiently. New waste facilities will be built in the right place and at the right time, protecting human health and the environment from waste development.
2 http://www.countydurhampartnership.co.uk/Pages/CDP-SustainableCommunityStrategy.aspx
14 County Durham Plan Preferred Options County Durham Plan Preferred Options
Question 1
This is our preferred Vision. Do you have any comments?
Objectives
3.2 The strategic objectives are derived from the Vision and focus on the key issues which the Plan needs to address. The objectives provide the broad direction of the spatial strategy and the detailed policies of the Plan.
Objective 1: Economic Ambition - Improve the economic performance of the whole of County Durham by creating more and better jobs, increasing the employment rate and reducing unemployment, thereby increasing GVA (a measure of economic performance), household income and demand for local goods and services.
Objective 2: Sustainable Communities - Locate new development in areas which offer the best opportunity for sustainable development patterns, including means of travel other than the private car, thus ensuring that new homes and jobs are supported by a high quality environment, services and infrastructure and in turn new development supports the vitality, viability and economic performance of our towns and villages.
Objective 3: Housing Need - Deliver new, high quality housing that is accessible to, and meets the needs and aspirations of, County Durham’s residents (including affordable, families with children, young people, older persons, multi-generational housing, specialist housing and those people wishing to build their own home) while making effective use of the existing stock.
Objective 4: Infrastructure - Enable the delivery of the necessary infrastructure such as transport, health and education and green infrastructure, that is required to support new and existing development and the economic, social and environmental ambitions of the county.
Objective 5: Town Centres - Maintain a clear hierarchy of vibrant, diverse and distinct retail centres that are the focus for commercial, retail and leisure uses.
Objective 6: Rural Economy - Support and improve the rural economy by encouraging diversification, retaining and enhancing key facilities, infrastructure and services whilst promoting appropriate new development in rural settlements.
Objective 7: Green Belt - Support the aims and purposes of Green Belt and seek to positively enhance its beneficial use, including increased opportunities to provide access, outdoor sport and recreation; to retain and enhance landscapes, visual amenity and biodiversity and/or to improve damaged and derelict land.
Objective 8: Effective Use of Land - Make the most effective use of land, buildings and existing infrastructure, re-using land and buildings that have been previously developed, wherever possible, provided that it is not of high social or ecological value and taking into account the need for remediation or the existence of unstable and/or contaminated land.
Objective 9: Natural Environment - Protect, enhance, maintain and manage the county’s locally, nationally and internationally important natural environment, including through protecting connectivity.
County Durham Plan Preferred Options 15 County Durham Plan Preferred Options
Objective 10: Built and Historic Environment - Protect and enhance County Durham's locally, nationally and internationally important built and historic environment, including its wide range of buildings, sites, archaeology, parks and gardens and other heritage assets.
Objective 11: High Quality Design - Ensure that all new development incorporates the highest quality of design and innovation, reflects local distinctiveness, promotes sustainability, low carbon and achieves safe and secure communities.
Objective 12: Raising Aspirations - Encourage greater prosperity by supporting education, training and research establishments that help to raise the aspirations, participation and attainment of young people, re-engage adults with work and lifelong learning and develop workforce skills.
Objective 13: Tackling Deprivation and Inequalities - Ensure that the regeneration needs of County Durham’s communities are met in order to reduce deprivation, improve health and address social, economic and environmental inequalities.
Objective 14: Quality of Life - Safeguard, enhance and provide a wide range of educational, social, sporting, health, recreational and cultural facilities including green infrastructure and seek to prevent and address pollution issues to contribute to the quality of life, satisfaction and health and well being of people who live, work within and visit County Durham, including addressing the needs of those with physical and mental disabilities.
Objective 15: Visitor Economy - Strengthen County Durham’s role as a visitor/tourist destination through supporting and enhancing existing attractions, visitor accommodation, townscapes, landscapes and the historic and natural environment.
Objective 16: Adaptation to Climate Change - Adapt to the impacts of climate change and extreme weather conditions by promoting sustainable urban drainage systems (SUDs) in new developments, promoting sustainable land management and conservation including protecting habitats such as woodland and peatland, ensuring that new development is located away from areas of flood risk, with an integrated approach to water management across all areas and encouraging appropriate building and infrastructure design and through the restoration of minerals and waste sites.
Objective 17: Low Carbon - Reduce the causes of climate change and support the transition to a low carbon economy by encouraging and enabling the use of low and zero carbon technologies, supporting the development of appropriate renewable energy sources and sustainable and active transport.
Objective 18: Natural Resources - Protect and enhance air, water and soil quality and encourage the efficient and environmentally acceptable use of the county’s resources, particularly energy, water, soils, timber, minerals and waste.
Objective 19: Supply of Minerals - Meet society’s needs and ensure a steady and adequate supply of both energy and non-energy minerals, in accordance with the principles of sustainable development, whilst also safeguarding economically important mineral resources, mineral sites and minerals related infrastructure from incompatible development.
Objective 20: Waste Management - Support the development of a modern network of sustainable waste management facilities whilst protecting human health and the environment; taking more responsibility for waste and aiming to deliver the waste hierarchy in all development by reducing the amount of waste going to landfill and encouraging the re-use, recycling, composting and recovery of waste, preventing and reducing waste and protecting existing facilities from incompatible development.
16 County Durham Plan Preferred Options County Durham Plan Preferred Options
Question 2
These are our preferred Objectives. Do you have any comments?
Delivering Sustainable Development
3.3 The National Planning Policy Framework (NPPF) makes it clear that the purpose of the planning system and local plans is to contribute to the achievement of sustainable development. In accordance with this, the County Durham Plan, when read as a whole, seeks to deliver sustainable development as a means of growing the county's economy, supporting the wellbeing of communities across the county, and protecting and enhancing the environment. The Plan therefore includes clear policies and the Sustainable Development statement below, to guide how the presumption in favour of sustainable development will be applied in County Durham.
Sustainable Development Statement
When considering development proposals, the council will take a positive approach that reflects the presumption in favour of sustainable development contained in the National Planning Policy Framework. It will work pro-actively with applicants jointly to find solutions which mean that proposals can be approved wherever possible, and to secure development that improves the economic, social and environmental conditions in County Durham.
Planning applications that accord with the policies in the Local Plan and the Minerals and Waste Policies and Allocations document(3)(and, where relevant, with policies in neighbourhood plans) will be approved without delay unless material considerations indicate otherwise.
Where there are no policies relevant to the application or relevant policies are out of date at the time of making the decision, the council will grant permission for sustainable development without delay unless material considerations indicate otherwise, unless either specific policies in the National Planning Policy Framework indicate that development should be restricted or any adverse impacts of granting permission would significantly and demonstrably outweigh the benefits, when assessed against the policies in the National Planning Policy Framework taken as a whole.
To deliver sustainable development in County Durham and achieve the economic, social and environmental benefits that development can bring we will pursue the following principles:
1. New development should create and support strong, vibrant, resilient and healthy communities, making the most effective use of previously developed land wherever possible, and enabling a larger number of people to have convenient access to jobs, training, services and facilities (including multi-functional green space) by public transport, walking and cycling as alternatives to the private car.
2. In order to secure balanced communities development should deliver economic growth and new job opportunities. This should be supported by an appropriate scale and mix of housing which meets identified need and is located in places where people wish to live.
3 Until the Minerals and Waste document has been adopted saved policies in the Minerals Local Plan and Waste Local Plan will continue to be used.
County Durham Plan Preferred Options 17 County Durham Plan Preferred Options
2. The location and scale of new development should meet the needs of our communities and businesses, supporting levels of growth commensurate with their access to services and facilities (as set out in the County Durham Settlement Study(4)), its rich and diverse environment and existing infrastructure constraints, whilst seeking opportunities to secure improvements and balancing this with land supply and viability.
3. To allow smaller communities to become more sustainable and resilient, development that delivers environmental and community benefits, social cohesion and economic vitality will be permitted, particularly if it benefits nearby communities that individually lack, services, facilities and/or employment opportunities; and
4. In rural areas, development that meets the economic and housing needs of the local community, including appropriate tourist development, will be permitted providing it is appropriate and the quality, character and valuable features of the countryside are protected.
3.4 A local plan should ensure that sufficient land of the right type is available in the right places to support growth by identifying and coordinating development requirements, including the provision of infrastructure. Development must also be viable, deliverable and located in places where people wish to live. In order to secure the infrastructure that is required to support new development such as highways improvements, open space or in the case of housing, school places or affordable housing then development must be allowed in those areas where there is sufficient opportunity for delivery.
3.5 The County Durham Plan should reflect all of the principles set out in the NPPF by directing most new development to those places that offer the best access to services and facilities (both now and for the foreseeable future). This can help reduce the need to travel, as well as making best use of existing infrastructure and previously developed land in built-up areas. By reflecting viability it also gives us the best chance of development being delivered.
3.6 Through the Plan, we will support opportunities to create new and better jobs as well as help people to improve their education and skills levels, obtain work, and set-up businesses. We will also ensure there is a portfolio of available sites to attract new businesses to the county and have the flexibility to respond to the changing needs of existing businesses.
3.7 Given the rural nature of much of the county, it is essential that we continue to promote a strong rural economy by supporting sustainable growth and expansion of all types of business and enterprise in rural areas. It is essential that opportunities are sought which will allow those who work in the countryside to also live there.
County Durham Settlement Study
3.8 County Durham consists of over 229 communities of differing character and size. These communities all play different roles, have different ambitions and have different relationships with the communities around them. To help understand these roles and relationships we have developed a Settlement Study(5)which assesses the availability of services and facilities in each settlement such as jobs, shops, schools and access to public transport. The Settlement Study lists all settlements in order reflecting the range and number of services available which informs the location of new development allocated within the Plan.
4 https://durhamcc.objective.co.uk/portal/planning/cdpev/ 5 https://durhamcc.objective.co.uk/portal/planning/cdpev/
18 County Durham Plan Preferred Options County Durham Plan Preferred Options
Question 3
This is our preferred Sustainable Development Statement. Do you have any comments?
General Development Principles
Policy 1 - General Development Principles
Policy 1
General Development Principles
All development proposals will be required to:
a. Contribute positively and ensure a high quality, appropriate and sympathetic response to an area’s character, significance and local setting in terms of scale, massing, design, layout, function and materials, helping to create and reinforce locally distinctive and sustainable communities;
b. Minimise the use of non-renewable and unsustainable resources, including energy, water and materials, during both construction and use by encouraging waste reduction and appropriate reuse and recycling of materials including appropriate storage space and segregation facilities for recyclable and non-recyclable waste and prioritising the use of local materials;
c. Incorporate design and security measures to provide a safe and inclusive environment which minimises actual or perceived opportunities for crime and anti-social behaviour;
d. Provide high standards of amenity and privacy, and minimise the impact of development upon the occupants of existing adjacent and nearby properties;
e. Minimise greenhouse gas emissions by seeking to achieve zero carbon buildings and providing renewable and low carbon energy generation, including connections to an existing or approved district energy scheme, where viable opportunities exist. In all new development where connection to the gas network is unviable it must utilise renewable and low carbon technologies as the main heating source;
f. Minimise vulnerability and provide resilience to impacts arising from climate change including, but not limited to, flooding;
g. Promote mixed use development and encourage the effective use of previously developed (brownfield) land (providing its not of high environmental value), whilst demonstrating the efficient use of land and resources by ensuring development is built at appropriate densities;
County Durham Plan Preferred Options 19 County Durham Plan Preferred Options
h. Plan positively and enhance local landscape characteristics, geological conservation interests and soils, and avoid, remedy or mitigate any impact on natural features, open spaces and identified views and maintain or where possible seek net gains in biodiversity;
i. Ensure development provides good quality public open space and green infrastructure or improves access to existing provision;
j. Take account of existing or planned infrastructure and contribute to additional infrastructure so that development is well served by transport, social and economic infrastructure;
k. Reduce the need to travel and minimise car use; and
l. Contribute towards healthy neighbourhoods and consider the health impacts of development and the needs of existing and future users including those with disabilities and dementia.
3.9 All development proposals will be assessed against this policy. It is acknowledged that not all elements will be relevant for every development, however applicants must consider the relevance of all criteria to their proposal as they may be asked to justify why they consider a specific element is not relevant. These policies are also complemented by advice and guidance contained in the Government's National Planning Policy Framework (NPPF) and National Planning Practice Guidance (PPG).
3.10 New development will be expected to be of a high design quality that respects and responds to the local context and distinctiveness of the area. The layout and design of new developments must be based on a thorough understanding of the site itself and its wider context including topography building layouts, built form, height, mass, scale, plot size etc. It should also seek to maximise the benefits of the site's characteristics and ensure valuable features and characteristics are protected and enhanced. The retention of established planting and trees in particular can visually enhance a development, as can ensuring an appropriate relationship with the wider landscape, both visually and in terms of activity and through the creation of wildlife corridors. Density is linked with design and it is essential that imaginative design solutions are encouraged that make efficient use of land and resources using appropriate density levels.
3.11 New development should seek to minimise the use of resources, including energy, water and materials and by encouraging minimising waste and encouraging recycling. This should apply both during construction and the lifetime of the completed development. For proposals that are likely to generate significant volumes of waste through the development or operational phases it will be useful to include a waste audit as part of the application in this regard. Incorporating energy minimisation and solar optimisation within the overall design and layout of developments can also contribute to this aim.
3.12 Safety and crime prevention are key elements of sustainable places and developments. The incorporation of design and security measures which reduce opportunities for crime will be supported and developers are encouraged to seek further advice on this from Durham Police at the earliest opportunity in the design process. Similarly, the incorporation of sprinkler systems to aid fire safety within new developments will be supported.
20 County Durham Plan Preferred Options County Durham Plan Preferred Options
3.13 A high quality built environment should consider the amenity of both existing and future residents and consideration should be given to matters of privacy, outlook, natural lighting, ventilation, as well as local climatic conditions.
3.14 The built environment accounts for over half of the UK’s CO2 emissions, through both construction and use. It is essential to meet both national and local targets so that new development does not overly increase this burden. Development must therefore target Zero Carbon Buildings through energy efficiency and use of renewable and low carbon energy technologies to mitigate carbon dioxide emissions. Compliance with nationally recognised standards including BREEAM will therefore be encouraged and supported by the council. For the next stage of the Plan we will also be undertaking further work to determine the viability of incorporating the requirement for Home Quality Mark accreditation, BREEAM and the introduction of a 10% carbon reduction target for all new development.
3.15 Renewable energy technologies will be encouraged on-site. Where opportunities for viable installations have been identified, it is expected that such installations would go forward as part of the development. Major developments will also be required to connect to an existing or approved district energy scheme where viable opportunities exist. Developments in off-gas areas usually use oil or LPG as their main heating fuel which is both expensive and carbon intensive. New development in these areas will therefore be required to utilise renewable and low carbon technologies as their main heating source.
3.16 It is vital to plan buildings and communities that are resilient to potential climate change impacts. Development must therefore be designed to withstand future weather trends as flooding events and heat waves will become a much more regular occurrence. For example, the use of green and brown roofs, and sustainable drainage systems, will be encouraged.
3.17 New schemes must demonstrate how the location of the development meets sustainability criteria including access to services, access to employment opportunities and impact upon the natural environment. Existing and proposed infrastructure, including access to public transport, should also be key consideration in order to reduce the need to travel and minimise car use.
3.18 NPPF acknowledges the role of spatial planning in improving health. Examples include through encouraging active travel and improving access to green space. As our population ages, development should also consider the needs of those users who are not in good health including those with disabilities and dementia. It is important therefore that developers should consider the needs of these groups when designing and delivering new development and neighbourhoods so that they create disability and dementia friendly buildings and communities.
How will the Policy be monitored?
1. The effectiveness of this policy will be judged in conjunction with the performance of other policies that relate to the criteria of this policy.
County Durham Plan Preferred Options 21 County Durham Plan Preferred Options
Question 4
This is our preferred policy. Do you have any comments?
4 How Much Development and Where
Quantity of Development (How Much)
4.1 Whilst the economy is seen as a high strategic priority of the council and its partners, it also needs to be balanced with ensuring that social and environmental issues are fully considered and prioritised equally. The Plan therefore reflects the need to create successful places by improving the economic performance of County Durham and providing the housing and facilities that we need. The Plan is paramount to creating the right conditions for a sustainable County Durham. This includes creating a better environment for business and residents by providing the infrastructure that is needed to enable an increased proportion of the working age population to be in employment, people to live in good quality housing and to have access to a range of facilities, with all the benefits to residents health, wellbeing and prosperity that follow as a result. The Plan therefore seeks to enable growth and economic prosperity by ensuring that there is sufficient land, of the right type and in the places where people and business wish to locate within the environmental constraints which exist.
Policy 2 - Quantity of Development
Policy 2
Quantity of New Development
In order to meet the needs and aspirations of present and future residents of County Durham and to deliver a thriving economy, the following levels of development are proposed up to 2035:
a. 305 hectares of strategic and general employment land for office, industrial and warehousing purposes; and
b. 25,992 new homes of mixed type, size and tenure.
Determining the Need for Employment Land
4.2 In order to support economic growth across the county, it is essential that a suitable supply of sites and premises is actively planned for if we are to attract and retain businesses in the future. The County Durham Employment Land Review (ELR) (6)provides the link between demographic change, job growth and the quantity of employment land that is needed to 2035. Government guidance suggests three approaches to understanding the quantitative need:
6 https://durhamcc.objective.co.uk/portal/planning/cdpev/
22 County Durham Plan Preferred Options County Durham Plan Preferred Options
Labour Demand – This approach uses employment forecasts of growth in different employment sectors from companies such as Experian and reflects recent trends and economic growth projections at the national and regional level. They also take into account how specific employment sectors in County Durham have performed relative to regional growth rates in the past. This results in a figure of 88 hectares;
Labour Supply – This approach is based on the estimated growth in jobs and a calculation of land needed to support these jobs. The jobs figures used are outputs from the calculation of the OAN set out below. This results in a figure of 86 hectares; and
Past Take-up of employment land and property – The amount of employment land which has been developed for different employment uses across the county since 2001. This results in a figure of 287 hectares.
4.3 The main difference between the forecasting techniques is conflicting views regarding the future requirements of manufacturing. The baseline labour demand and labour supply scenarios indicate pessimistic forecasts for the manufacturing sector. This does not reflect the reality on the ground with the past take up analysis indicating that future manufacturing demand will be 105 hectares.
Qualitative Demand
4.4 All three forecasting techniques have their strengths and limitations and consideration needs to be given as to how appropriate each scenario is to the circumstances of County Durham, taking into account current market conditions. Therefore in determining a final figure for the levels of employment land required, it is important to also take into account relevant qualitative factors. Such factors include the views of businesses, agents and developers, to obtain a detailed understanding of the commercial market context for the county, emerging sectors and market signals. We also need to factor in current business trends and monitor relevant business, economic and employment statistics. This will allow us to build up the qualitative and quantitative picture necessary to provide a full understanding of demand for employment land to ensure that land is identified in areas which are most attractive to businesses.
Supply
4.5 The ELR also considers the current supply of employment land. We estimate the county has around 728 hectares (gross) of allocated employment land, quite often in parts of the county which do not serve the needs of business. The reason this figure is so high relates to the local plans of the former local authorities which each allocated their own sites.
4.6 Government advice recommends the de-allocation of employment land that has not come forward for development over many years as this could be a constraint on the development of our towns and villages by reducing the amount of land that may be available for housing. Similarly the long term protection of sites where there is no reasonable prospect of the site coming forward may also make it difficult to resist non-employment uses, such as housing, being developed on our more valuable employment allocations.
Quantity of Employment Land
4.7 When comparing the existing supply of employment land to the forecasted need there is a significant oversupply. This oversupply is particularly high in areas where existing market demand is low and forecast expects it to remain so. Therefore following a review of the existing supply of employment land and potential new employment sites, the ELR recommends that County Durham's
County Durham Plan Preferred Options 23 County Durham Plan Preferred Options
portfolio of employment land should be circa 260 hectares. To give flexibility and to acknowledge that many of the employment land allocations are within existing employment areas and therefore unsuitable for other uses, the Plan identifies a slightly higher supply of land of 305 hectares.
4.8 The Plan also identifies NETPark, where the land is allocated for a specific type of employment use. It therefore will fall outside of the 305 hectares of employment land supply. In addition further land at NETPark and Integra61 is safeguarded beyond the Plan period.
Employment Land Trajectory
4.9 The Employment Land Trajectory identifies the projected delivery of employment land by hectares, over the Plan period. The graph shows four trajectory lines which represent the types of employment land allocations contained within the Plan. It takes into account existing planning permissions, past take up rates and market intelligence in terms of the strength of economic market areas across the county.
Determining the Objectively Assessed Need for Housing
4.10 The National Planning Policy Framework (NPPF) requires that strategic plans provide for objectively assessed needs (OAN) for housing. In this context, the 2016 Issues and Options stage County Durham Plan set out three options as alternative scenarios for future housing needs. The three scenarios were based on different configurations of national and international migration trends over short term (6 year) and long term (13 year) reference periods. These are set out within out within the Edge Analytics 'County Durham Analysis and Forecasts document' (dated Feb 2016) and reflected in the Strategic Housing Market Assessment (dated June 2016).
4.11 Following the publication of the Issues and Options document, the Government has subsequently consulted on and updated the approach to assessing housing needs. This approach was set out for comment within the 'Planning for the Right Homes in the Right Places' published in September 2017. This approach has now been taken forward in the draft NPPF and accompanying draft Planning Practice Guidance (PPG) published in March 2018. A letter sent to all Local Planning Authorities in England in January 2018 from Steve Quartermain, the Government’s Chief Planning
24 County Durham Plan Preferred Options County Durham Plan Preferred Options
Officer, clarified that the Government’s new standardised approach for calculating housing need should be used by local authorities, unless their plan will be submitted for examination on or before 31 March 2018, or before the revised Framework is published (whichever is later). This timescale makes the use of the new standard approach appropriate for the County Durham Plan.
4.12 As the three alternative scenarios for housing need set out in the Issues and Options were based on the former methodology they are in effect superseded by the new standard approach. It should be noted that the SHMA published in 2016 stated that a subsequent 'Part 2' version would confirm an objectively assessed housing need to inform the preferred options stage plan. The introduction of the new standard approach has removed this requirement. The SHMA does however establish that County Durham is a self-contained Housing Market Area (HMA) and an appropriate geography for the purposes of undertaking an assessment of housing need and for the purposes of plan making. Through the Duty to Cooperate it has also been confirmed that the County Durham HMA does not overlap with any other local authority boundaries or other HMAs. Furthermore no local authority has asked Durham County Council to make provision to meet a proportion of their housing need and similarly we are not expecting any other authority to meet a proportion of our housing need.
4.13 The draft PPG sets out three steps to assess housing need in line with the new standard approach:
Step 1: Setting the Baseline
Step 2: An adjustment to take account of market signals
Step 3: Capping the level of any increase
4.14 As part of setting the baseline, the council has made use of the most up to date 2014 based Sub National Household Projections. In line with the methodology, these projections have been taken over a 10 year period and annualised. This results in 1,322 households per annum. In response to step 2, making use of the formula in the guidance the affordability adjustment equates to an additional 46 dwellings per annum in County Durham. In line with the guidance at step 3, a cap is not required for County Durham.
4.15 The standard methodology therefore results in 1,368 dwellings per annum in County Durham. In line with the guidance, this is applied over the Plan period resulting in a local housing need in County Durham of 25,992 over the plan period 2016 to 2035. It should be noted that this number is a target and not a ceiling, if housing completions do exceed this level then this will be reflective of a buoyant housing market.
Delivering the New Housing Required
4.16 The Plan seeks to ensure that the full objectively assessed housing need for the county is met. There are a number of sources of housing supply that can contribute to meeting this need. The gap between this contribution and the total housing need determines how much additional land needs to be allocated. When allocating the sites to bridge this gap the Plan has looked to ensure they will deliver the right homes in the right places, taking into account need, demand, deliverability, sustainability and improving choice.
Commitments
4.17 A significant proportion of the new houses we need are already committed either on sites under construction or sites not started with planning permission (a total of 16,808 houses as at 31st March 2018). However it is unlikely that all of these will come forward during the Plan period for a
County Durham Plan Preferred Options 25 County Durham Plan Preferred Options
variety of reasons. The existing commitments make up 65% of the OAN, therefore the effect of non-delivery of some of developments on the ability to meet the plan’s OAN has the potential to be significant.
Table 1 Total Commitments by Monitoring Area
Local Plan Monitoring Area Total Commitments (1)
Durham City 1166
Central Durham 2233
North Durham 1425
North West Durham 1978
Mid Durham 2724
South Durham 2689
South East Durham 604
East Durham 3079
West Durham 910
Total 16,808
1. including sites under construction and those with an outstanding planning permission
4.18 An investigation of the lapse rate of planning permissions granted in County Durham has been undertaken and shows that from 2011/12 to 2014/15 between 9% and 35% of the total number of houses approved had lapsed, an average of 17% per annum. This analysis is based on whether the site had an expired planning permission by 31st March 2018 so it is possible that some of these sites may still be delivered in future years should a new planning application be granted. To recognise this possibility it is considered that a 10% lapse rate, rather than the 17% average, would be more appropriate.
4.19 The council does not however believe a 10% lapse rate is required for the proposed housing allocations in the Plan as the deliverability of these have been assessed using a robust methodology including viability assessments. This provides confidence that they will deliver the expected number of homes during the Plan period.
Windfalls
4.20 Government guidance states that local plans may include allowances for windfall sites (non-allocated sites) which may come forward at some time in the future if there is evidence to justify that allowance. As small sites under 0.4 hectares (12 houses) have historically made a significant contribution to past housing delivery (an average of 126 houses per annum for the past seven years) it is considered that it would be appropriate to include an allowance, rounded to 130 per annum, for small sites. This would reflect the contribution small sites can make but which does not make future housing delivery over reliant on them. This figure has not been applied in the residual for allocation calculation for the first three years of the Plan period as this would double count those small sites already included in the supply of existing commitments.
4.21 Due to the age of the existing local plans in County Durham, large windfalls have made a significant contribution to housing delivery in the recent past. However, although it is accepted that some large windfalls may still receive planning permission during the Plan period, it is considered
26 County Durham Plan Preferred Options County Durham Plan Preferred Options
that these should not be relied upon to meet our housing requirement. We therefore consider it inappropriate to include an allowance for large windfall sites as this could undermine the purpose of the local plan in providing certainty on where new housing should go.
Empty Homes
4.22 Bringing empty homes back in to use is a key priority for the council. We also recognise the issues experienced in some areas as a result of concentrations of vacant, underused properties and will continue to work with all relevant agencies and in particular Homes England to pursue funding that will allow as many properties as possible to be brought back into use. Past performance shows that on average, around 100 houses per year have been brought back into use. This gross figure is however offset to some degree by those that move from being short term vacancies to become long term vacancies during the same period. As homes fall in and out of long term vacancy for a whole host of reasons it is difficult to do anything more than estimate future impact upon housing supply based upon past trends and known future council activity. It therefore seems reasonable to assume a figure of 50 houses per year although this figure will be carefully monitored.
Student Housing
4.23 The PPG states that all student accommodation, whether it consists of communal halls of residence or self-contained dwellings, and whether or not it is on campus can be included towards the supply of housing based on the amount of accommodation it releases into the housing market. Despite the development of new student accommodation within the county, current evidence does not indicate that it is resulting in houses in multiple occupation (HMOs) being released into the general housing market. Therefore no allowance for this has been made when calculating the amount of new housing which needs to be allocated in the Plan although this position will be monitored.
Demolitions
4.24 Sometimes where there is little or no demand for houses or they are in such poor condition that they are uninhabitable it is necessary to demolish them. If they are not council owned then they may have to be purchased before they can be demolished. Although funding for future demolitions is uncertain it is likely that there will be a degree of further demolitions across the Plan period, particularly in areas of low demand. Although on average, there have been around 75 demolitions per year in the past this can only be an estimate to the number of future demolitions given the changing funding climate. We therefore think it is sensible to assume a lower figure of around 50 houses per year although this figure will be carefully monitored.
Residual for allocation
4.25 Taking the sources of supply set out above into account the following table sets out the calculation used to determine how many houses we need to plan for through by allocating specific housing sites across the county.
Table 2 Number of Houses to be Allocated
Component Total
A OAN 25,992
B Windfall allowance for sites under 0.4 hectares (12 houses) (130 pa from 2019 onwards) -1820
C Windfall allowance for sites over 0.4 hectares (12 houses) 0
D Demolition Allowance (50pa) 850
County Durham Plan Preferred Options 27 County Durham Plan Preferred Options
Component Total
E Bringing empty homes back into use (50pa) -850
F Former student units released back into the housing market (0pa) 0
G Commitments as at 31st March 2018(1) -16,808
H 10 % Discount for non-delivery of commitments 1681
I Completions 1st April 2016 to 31st March 2018 -2773
J Residual for allocation 6272
1. Includes sites where Section 106 agreements have not been signed .
Housing Trajectory
4.26 Trajectories are a planning tool designed to illustrate the expected rate of housing delivery across the plan period. In order to prepare the housing trajectory for the county, we have estimated the projected build out rates for all existing housing commitments and allocated sites. It is important to emphasise that the housing trajectories are not intended to produce perfect forecasts of the future but do provide as good an understanding as possible of the prospects for delivery. The advice of developers and local agents has proved important in assessing lead-in times and build-out rates. The trajectory sets out how the plan will maintain delivery of a five-year supply of housing land to meet the objectively assessed need.
28 County Durham Plan Preferred Options County Durham Plan Preferred Options
How will the Policy be monitored?
Indicator:
1. Employment Land approved and completed
2. Number of houses approved and completed per year
Target:
1. Annual employment land delivery target - based on the Employment Trajectory
2. 1368 houses
Question 5
This is our preferred option for the amount of employment land we need. Do you have any comments?
Question 6
This is our preferred option for the number of houses we need. Do you have any comments?
County Durham Plan Preferred Options 29 County Durham Plan Preferred Options
Spatial Distribution of Development (Where)
4.27 A local plan not only identifies the amount of new development needed but also where it should be located. Any options for locating new development should reflect the Sustainable Development Statement but must also be realistic, deliverable, support the achievement of sustainable development and reflect an understanding of our neighbouring authorities' strategies.
Distribution of Employment
4.28 It is important to ensure that there is a portfolio of available sites across the county which are attractive to new employers, allow the expansion of existing businesses and respond to the changing needs of businesses. It is essential that these are located in areas of the county that offer good opportunities to attract investment. The Employment Land Review (ELR)(7) identifies a number of economic market areas across County Durham which reflect different commercial markets and recognise cross boundary relationships. These market areas are:
Durham City;
A1 Corridor;
A19 Corridor;
Consett and Surrounds;
Bishop Auckland and surrounds; and
The Rest of County Durham including rural areas.
4.29 The ELR has assessed land across these market areas and identifies surpluses and shortages against the levels of demand for employment land. This then informs the employment land allocations, focusing on the most attractive market areas, whilst also ensuring that we meet the needs of other areas.
Policy 3 - Employment Land
Policy 3
Employment Land
Employment Allocations
Undeveloped land and plots at the following employment sites and at proposed extensions to these existing employment sites, as shown on the policies map, are allocated for B1 (Business), B2 (General Industrial) and B8 (Storage and Distribution) unless specifically stated.
Table 3 Employment Land Allocations by Local Plan Monitoring Areas
Site Name Site Area (hectares, net)
DURHAM CITY
7 https://durhamcc.objective.co.uk/portal/planning/cdpev/
30 County Durham Plan Preferred Options County Durham Plan Preferred Options
Site Name Site Area (hectares, net)
Aykley Heads (B1 only) 3.41(8)
Belmont Industrial Estate 5.78
Abbey Woods 0.66
Dragonville 1.68
Total 11.53
CENTRAL DURHAM
Meadowfield Industrial Estate 26.67
Bowburn North Industrial Estate 0.42
Integra61 (Land South of Bowburn Road) 44.25
Total 71.34
NORTH DURHAM
Drum Industrial Estate (Chester-le-Street) 4.44
Stella Gill Industrial Estate (Chester-le-Street) 1.29
Westline Industrial Estate 1.01
Bowes Business Park (Lambton) (B1 only) 0.17
Lambton Estate 10.04
Total 16.95
NORTH WEST DURHAM
Villa Real (Consett Business Park) 0.78
Delves Lane South 0.61
Leadgate Industrial Estate 1.06
Tanfield Lea Industrial Estate (North) 4.15
Tanfield Lea Industrial Estate (South) 2.13
Greencroft Industrial Estate (Annfield Plain) 5.66
Number One Industrial Estate (Consett) 1.37
Total 26.56(9)
MID DURHAM
Chilton Industrial Estate 0.76
8 As detailed in Policy 4 (Aykley Heads) and excludes areas that are currently in use for employment 9 Includes 10.8 hectares on Hownsgill Industrial Estate
County Durham Plan Preferred Options 31 County Durham Plan Preferred Options
Site Name Site Area (hectares, net)
Chilton Extension 3.42
Dean and Chapter Industrial Estate (Ferryhill) 0.23
Green Lane Industrial Estate/Durham Gate (Spennymoor) 10.18
Low Willington Industrial Estate 8.96
Dan's Castle Industrial Estate (Tow Law) 0.26
Inkerman 1.16
Total 24.97
SOUTH DURHAM
Aycliffe North 10.19
Aycliffe South 14.69
Merchant Park (Newton Aycliffe) 10.12
Forrest Park (Newton Aycliffe) 50.85
South Church Enterprise Park (Bishop Auckland) 6.86
St Helens Auckland 0.91
Future Business Park (Shildon) 2.74
All Saints Industrial Estate (Shildon) 6.72
Total 103.08
SOUTH EAST DURHAM
Fishburn Industrial Estate 0.82
Total 0.82
EAST DURHAM
Jade Park 18.85
Peterlee North West Industrial Estate 8.52
Peterlee South West Industrial Estate 8.2
Sea View Industrial Estate (Horden) 1.6
Total 37.17
WEST DURHAM
Harmire Industrial Estate (Barnard Castle) 2.32
Stainton Grove Industrial Estate 0.2
32 County Durham Plan Preferred Options County Durham Plan Preferred Options
Site Name Site Area (hectares, net)
Land at Shaw Bank (Barnard Castle) 7.13
Randolph Coke Works (Evenwood) 2.78
Total 12.43
COUNTY DURHAM 304.85(10)
Specific Use Employments Sites
A site of 13.5 hectares at land north of NETPark, Sedgefield is allocated for uses with use class B1, specifically for Research and Development only.
Safeguarded Employment Sites
An area of 17.69 hectares to the north of NETPark allocation is safeguarded for future expansion beyond the end of the Plan period.
A site of 61.95 hectares to the west of the Integra61 allocation is safeguarded for future expansion land beyond the end of the Plan period.
Project Genesis
In order to progress the regeneration of Consett the council will support mixed use development on the Project Genesis site, as shown on the policies map, including a site of 10.8 hectares at Hownsgill Industrial Estate for general employment land, provided the development accords with all relevant development plan policies.
Development of Employment Sites for Other Uses
Development for non-employment uses(11) on employment allocations (as identified in Table 3) or existing protected employment sites (as identified in Table 4) will not be permitted unless:
a. The plot of land or building is no longer physically suitable for employment uses and there is no prospect of re-use or redevelopment/development for such uses; and
b. There is documented evidence of unsuccessful active marketing for employment use with at least one recognised commercial agent at local market levels, over a continuous period of at least 12 months for a property and 5 years for a plot of land; or
c. The proposed use would support the wider functioning of an employment site and would be ancillary to the main employment use of the site.
Any new development for non-employment purposes on employment allocations or existing protected employment sites must comply with the other relevant policies in the Plan and any existing jobs located on the site must be relocated.
10 Includes 10.8 hectares on Hownsgill Industrial Estate 11 Development for non employment uses is uses other than Business (B1), General Industrial Use (B2) or Storage and Distribution (B8) unless specifically stated.
County Durham Plan Preferred Options 33 County Durham Plan Preferred Options
4.30 The County Durham Employment Land Review (ELR)(12) has assessed all employment sites across the county together with sites put forward as part of the 'Call for Sites' for employment land, against a range of criteria. These assessments give an indication of the relative strengths and limitations of these sites and has informed the site allocations detailed above. Many of these are undeveloped plots on existing industrial estates. It is important that a variety of sites are retained for employment purposes to achieve a balanced and sustainable local economy and to provide opportunities for sustainable economic growth. Therefore non-employment uses will be resisted unless they meet the criteria detailed within this policy. In some instances, particularly on larger employment sites, facilities such creches/nurseries, gyms, sandwich shops and cafés can support the wider functioning of the employment site and provide valuable facilities for employees working within these locations. Such uses should however, be ancillary to the main employment use.
4.31 The Plan allocates two significant areas for business at Newton Aycliffe. These are sites that will contribute significantly to the economy of the county and provide unique investment opportunities. Newton Aycliffe Industrial Estate is one of the largest estates in the North East and land exists to the south and west of the estate for further expansion. The adjoining Merchant Park was identified as the preferred location by Hitachi for a train manufacture and assembly plant. A purpose built facility has recently opened and will produce new rolling stock for East Coast and Great Western Trains. The site will see large scale job creation with the Hitachi development having the potential to act as a catalyst for further growth and investment within the sector and bring wider benefits to Newton Aycliffe and County Durham as a whole.
4.32 Forrest Park is a site of 50 hectares located adjacent to junction 59 of the A1(M) bounding the A167 and Shildon Branch line. This site has the potential to deliver a prestige employment development, which may include a major freight interchange operation providing rail linked distribution warehousing and having direct motorway access to rail and port container services. The site may also provide further accommodation for businesses attracted to Newton Aycliffe following the location of Hitachi in the town. Funding has recently been secured that will provide utility infrastructure and an access onto the site.
4.33 To the south of Murton is the site of the proposed Enterprise Zone, Jade Park. With good links to the A19, the Jade Park site is one of ten sites around the region that has been given Enterprise Zone status by the North East Local Enterprise Partnership (LEP). Businesses located within this Enterprise Zone will receive a number of benefits that are in place to drive economic growth. For this reason nearly 20 hectares of land is allocated for development.
4.34 There is also 10.8 hectares allocated at Hownsgill as part of Project Genesis in Consett. The Project Genesis Trust was formed in the late 1980s as a registered charity in order to regenerate the site of the former Consett Steelworks and reinvestment of the funds from the development for the provision of environmental, recreational and social benefits to local people. Alongside a number of new commercial developments including a Tesco’s Superstore, new housing and a new building for Derwentside College a number of new industrial premises and offices for local and international businesses have also been delivered. The remaining land on Hownsgill will support further jobs growth and contribute to the regeneration of the town.
4.35 Meadowfield Industrial Estate is located to the west of Durham City. It covers a large area and currently houses a variety of businesses and uses. The popular estate has seen recent land take up with new premises having been developed. Land exists for business and industrial growth, building on its locational advantages relatively close to Durham City and the A1(M). The Plan therefore identifies 26.67 hectares of land which will provide opportunities for further growth over the Plan period.
12 https://durhamcc.objective.co.uk/portal/planning/cdpev/
34 County Durham Plan Preferred Options County Durham Plan Preferred Options
4.36 The economy of Bishop Auckland has undergone a period of change within recent years. There are however 7 hectares of undeveloped land at South Church Enterprise Park which continues to be a popular location for business with the town. The Plan therefore allocates land to meet business needs in the town.
4.37 The remaining allocations in this policy are for general employment use, light/heavy industry/warehousing, within the B1 (Business), B2 (General Industrial) and B8 (Storage and Distribution) use classes. These sites will meet the county's employment land requirements to 2035 as set out in Policy 2 (Quantity of Development).
4.38 The development of the employment allocations identified in Table 3 will contribute to creating a prosperous economy in County Durham. Therefore they will be protected from development for non-employment uses except in the specific circumstances set out in the policy.
Specific Use and Safeguarded Employment Sites
4.39 NETPark is a regionally significant centre for research and development (R&D) and plays a vital role in unlocking the research potential of North East universities and colleges. It is important to the continued success of NETPark that future phases of development are allocated and safeguarded for R&D and technology transfer activity linked to the research specialisms of the region's higher and further education institutions. The Plan therefore allocates 13.5 hectares of land within the Plan period and a further 17.7 hectares is safeguarded as future expansion land beyond 2035. Given its economic importance it is necessary to ensure that the safeguarded land is retained for future phases of development. If the monitoring of the take up of land NETPark indicates that the safeguarded land is required earlier, this will be addressed in a future review of the Plan.
4.40 The Plan allocates 44.25 hectares of employment land to the south of Bowburn, known as Integra61. Further land of nearly 62 hectares adjacent to this site , west of the Leamside Line is considered to provide a logical next phase to the development of Integra61 if it is successful. The site has been safeguarded beyond the Plan period however, should the take up of the allocated land indicate that land is required earlier, this will be addressed through a future review of the Plan.
Protected Employment Sites
4.41 In addition to the new land identified for employment the ELR also identifies a number of other existing employment sites which make an important contribution to the economy of the county and are of sufficient quality that they should be protected for employment use. These are listed in Table 4 below. These will only be permitted to change to non-employment uses subject to the criteria in this policy.
Table 4 Protected Employment Sites
Durham City
Abbey Road (Durham City) Belmont Industrial Estate (Durham City)
Abbeywoods (Durham City) Durham Science Park (Durham City)
Aykley Heads (Durham City) Dragonville (Durham City)
Central Durham
Bowburn Industrial Estate (North) Langley Park Industrial Estate (North)
Bowburn Industrial Estate (South) Langley Park Industrial Estate (South)
County Durham Plan Preferred Options 35 County Durham Plan Preferred Options
Coxhoe Industrial Estate Meadowfield Industrial Estate
Esh Winning Industrial Estate Quarrington Hill Industrial Estate
Kimblesworth Industrial Estate Sherburn Hill Industrial Estate
Langley Moor & Littleburn Industrial Estate Tursdale Industrial Estate
North Durham
Bowes Business Park (B1 uses only) Sacriston Colliery Industrial Estate
Drum Industrial Estate (Chester-le-Street) Stella Gill Industrial Estate (Chester-le-Street)
Lumley Sixth Pit The Turnpark (Chester-le-Street)
Sacriston Industrial Estate Westline Industrial Estate
North West Durham
Bradley Workshops (Consett) Leadgate Industrial Estate
Castleside Industrial Estate (Consett) Malton Industrial Estate
Craghead Industrial Estate (Stanley) Morrison Busty (South) (Annfield Plain)
Crookhall Industrial Estate (Consett) Morrison Busty (North) (Annfield Plain)
Delves Lane (North) Morrison Service (Annfield Plain)
Delves Lane (South) Number One Industrial Estate (Consett)
Derwentside/Consett Business Park Park Road Industrial Estate (Consett)
Derwentdale Industrial Estate (Consett) Park Road Industrial Estate (North) (Consett)
Greencroft Industrial Estate (Annfield Plain) Ponds Court (Consett)
Harelaw Industrial Estate Tanfield Lea (North)
Hamsterley Industrial Estate Tanfield Lea (South)
Hobson Industrial Estate The Grove (Consett)
Hownsgill (Consett) Watling Street (Consett)
Mid Durham
Chilton Industrial Estate Inkerman (Tow Law)
Dan's Castle Industrial Estate (Tow Law) Mainsforth Industrial Estate
Dean and Chapter Industrial Estate (Ferryhill) Merrington Lane (Spennymoor)
Dunelm Industrial Estate (Willington) Thistleflat/Beechburn Industrial Estate (Crook)
Green Lane/Durham Gate (Spennymoor) Thrislington/Cornfornth
High Hope Street (Crook) Tudhoe Industrial Estate
36 County Durham Plan Preferred Options County Durham Plan Preferred Options
Low Willington Industrial Estate
South Durham
All Saints (Shildon) Laurel Way Industrial Estate (Bishop Auckland)
Aycliffe Business Park (North) Romanway Industrial Estate (Bishop Auckland)
Aycliffe Business Park (South) Shildon (Dabble Duck) Industrial Estate
Coundon Industrial Estate (West) South Church Enterprise Park (Bishop Auckland)
Furnace Industrial Estate (Shildon) St Helen Auckland Industrial Estate
Future Businees Park (Shildon) West Auckland Industrial Estate
Hackworth Industrial Estate (Shildon)
South East Durham
Fishburn Industrial Estate Trimdon Grange Industrial Estate
NETPark (Sedgefield) (B1 uses in Research and Sedgefield Station Development only)
Salters Lane Industrial Estate (Sedgefield)
East Durham
Blackhall Industrial Estate Seaham Grange
Brackenhill Business Park (Peterlee) Sea View (Horden)
Cold Hesledon Industrial Estate Shotton Colliery Industrial Estate
Foxcover Industrial Estate (Seaham) Spectrum Business Park (Seaham)
George Street (Seaham) Thornley Station
Peterlee North East Industrial Estate Whitehouse Business Park (Peterlee)
Peterlee North West Industrial Estate Wingate Grange Industrial Estate
Peterlee South West Industrial Estate
West Durham
Bond Isle (Stanhope) Middleton Station (Middleton-in-Teesdale)
Broadwood (Frosterley) Randolph Industrial Estate (Evenwood)
Evenwood Industrial Estate Stainton Grove Industrial Estate (Barnard Castle)
Frosterley St John's Chapel Industrial Estate
Harmire Industrial Park (Barnard Castle) Wolsingham Industrial Estate
County Durham Plan Preferred Options 37 County Durham Plan Preferred Options
Non-Protected Employment Sites
4.42 The ELR identifies a number of existing employment sites that are currently in use (either in full or in part) that are not considered necessary to protect. This is due to various factors such as high vacancy rates, low demand and in some instances large areas of the site that have already been lost to alternative uses such as housing, often due to low demand. In line with guidance in the National Planning Policy Framework (NPPF), their redevelopment for other uses will be permitted where the proposed scheme is in accordance with the relevant policies of the Plan and any jobs on site are successfully relocated.
Monitoring
4.43 The take up of employment land allocated in the Plan will be monitored and further land will be identified if required. The extent of each Employment Allocation and Protected Employment Site are shown on the policies map. Applications for employment uses outside of identified employment sites will be assessed against relevant policies in the Plan.
How will the Policy be monitored?
Indicator:
1. Amount of employment land approved and completed by Use Class on allocated sites
2. The amount of allocated and protected employment land lost to other uses
Target:
1. In accordance with the employment trajectory
2. None lost to other uses
Question 7
This is our preferred policy. Do you have any comments?
Policy 4 - Aykley Heads
Policy 4
Aykley Heads
In order to provide a high quality employment location to contribute to the delivery of the new and better jobs Durham City and County Durham need, land at Aykley Heads, as shown on the policies map, is allocated as a Strategic Employment Site. The development of this site will have regard to the provision and timing of the infrastructure necessary to support it.
38 County Durham Plan Preferred Options County Durham Plan Preferred Options
The development of the site will reflect the following principles of development:
Employment
a. Deliver approximately 47,500 sqm of new high quality, flexible office (use class B1a) floorspace on 9 hectares(13) of land to attract national and international employers;
b. An area of 1.2 hectares, currently occupied by the County Hall car park(14), will be released from the Green Belt in order to provide office floorspace, providing a key gateway frontage into the site; and
Services
c. To ensure the commercial attractiveness of the site, supporting ancillary facilities will be permitted on the site provided that they complement the wider range of facilities in the city centre and satisfy the sequential and impact test as outlined in Policy 10 (Retail Hierarchy and Town Centre Development). Uses which may be appropriate include:
A1 (convenience retail, sandwich bar) A2 (financial and professional services)
A3 (restaurant, snack bar, café) A4 (drinking establishments)
C1 (hotels) D1 and D2 (health facilities, crèche, gym)
Green Infrastructure
d. Incorporate an interconnected network of good-quality, multi functional green infrastructure including an adequate supply of different types of open space. An appropriate and enhanced landscape structure with clearly defined boundaries will also be developed;
e. Set the new office development within a strong landscape framework which capitalises on the site's natural landscape features, provides integration with the surrounding landscape, preserves and enhances wildlife potential and embraces environmental standards;
f. Provide a new city park by enhancing the land at the east of the site as an integral part of the site's development. This parkland will allow the site to retain its openness and provide an enhanced network of multi-user routes, tree planting and habitat creation together with a new open-air space for public events; and
g. Provide enhanced green routes running through the new park to provide attractive and safe routes linking this area to the northern entrance of Durham Railway Station and Wharton Park and residential areas to the north of the site.
13 This includes the existing plot of County Hall. 14 To the south east of County Hall.
County Durham Plan Preferred Options 39 County Durham Plan Preferred Options
Sustainable Design
h. Deliver attractive, high quality design incorporating sustainable development principles and adopting sustainable construction methods;
i. Have regard to views and the significance of the Durham Castle and Cathedral World Heritage Site;
j. A water drainage management plan, incorporating SuDS, will be required. It will consider wider opportunities for improvement of local water quality. Any SuDS developed should be designed to incorporate wetland habitats.
k. Enhance the entrance to the site from Durham Railway Station and provide good quality pedestrian and cycle links from the station into the site; and
l. Create a new high quality gateway entrance fronting onto the A691/B6532.
Transport
m. Bus, pedestrian and cycle routes must be incorporated within, and connecting to the city centre and other adjoining facilities. A Transport Assessment and Travel Plan will also be required to ensure that reliance on the private car is reduced and to mitigate the impact of increased traffic; and
n. Encourage the use of Park and Ride schemes and other forms of sustainable transport while providing sufficient parking to major investors and prestige businesses.
4.44 Durham City is the most important employment centre in the county and the only key employment location within the county which can be described as having a county-wide employment draw(15). Durham City performs well relative to other areas of the county, it currently has significant levels of public sector jobs including Durham Passport Service, National Savings and Investment, Durham Constabulary, University Hospital and the County Council. Durham has a world leading university, good infrastructure and an excellent environment and quality of life on offer, however historically it has struggled to attract significant private sector investment. This is principally because the city lacks a modern business quarter and a shortage of suitable sites. It is therefore important that the Plan identifies a location that is attractive to private sector investment and business.
4.45 The Employment Land Review (ELR) recognises that Durham City is the county's key office location and dominates the county's office market. It reports of rising demand for office accommodation and low vacancy rates within the City Centre and DH1 postcodes. This is due to the take up in Durham City having been constrained by a lack of available sites and Enterprise Zone status in other areas which directed development to the A19 Corridor. This demand supports the need to develop a business location of strategic importance within Durham City to promote private sector investment.
15 Commuter inflows into Durham City are far greater than outflows. Durham City has the largest working population of all settlements in County Durham and is also the highest attractor of work trips in the county. Source County Durham Travel Patterns - 2011 Census Date Analysis, Jacobs.
40 County Durham Plan Preferred Options County Durham Plan Preferred Options
4.46 The site is located close to the city centre, adjacent to Durham Railway Station, has cycle paths and footpaths and excellent road links to the A1(M) and A167. Detailed analysis and consultation with business and developers through the preparation of the ELR, has also concluded that Aykley Heads compares favourably with other sites in the city, the county and the remainder of the North East. The high quality landscape and unique setting has the potential to provide a high quality office environment that would therefore be attractive to private sector investment.
4.47 Recent private sector investment in the city at the Gates, Freeman's Reach and Milburngate House and by Atom Bank (a new and exclusively online bank) and Waterstons (a business and IT consultancy) at Aykley Heads, is evidence that the city, and Aykley Heads in particular, have the potential to attract further significant private sector investment. It is important that this momentum is maintained through a policy approach that allows the Aykley Heads site to maximise its potential as a strategic employment site over the Plan period.
4.48 At a meeting of the council's cabinet on the 17th January 2018 a masterplan for Aykley Heads was agreed. The Aykley Heads redevelopment is supported by a number of regional organisations including the North East LEP and North East England Chamber of Commerce as well as Durham University. The redevelopment of Aykley Heads requires that the council vacates its current building and at the same meeting cabinet also agreed that the council's new HQ will be located on the Sands car park, opposite Freeman's Quay leisure centre.
4.49 The current Green Belt boundary at Aykley Heads has been drawn tightly around the existing buildings and includes 1.2 hectares of land which is a hard-surfaced car parking area at County Hall. This area was assessed as part of the Green Belt Assessment which found that although this area does contribute to preserving the setting and special character of historic towns it does not perform strongly with regards to the other Green Belt purposes set out in the National Planning Policy Framework (NPPF). Not withstanding the findings of the Green Belt Assessment the car park is a clear urban use which adjoins the Durham City Conservation Area. Whilst development may therefore have an impact, by connecting the site with the city centre and creating a 'presence' on Framwellgate Peth/A691 it would provide an opportunity to enhance the setting of the Conservation Area and the approaches into the city centre. The exceptional circumstances to justify the removal of the car park from Green Belt would therefore be the unique economic opportunities a strategic employment site in this location brings in terms of more and better jobs and the opportunity to enhance the contribution that this site makes to the Conservation Area and the setting of the historic core. In addition as this area would act as a gateway for the site, linking it to the city centre and the station its sensitive development would be important to the eventual success of the entire site.
4.50 In order for Aykley Heads to effectively stimulate economic growth the provision of start-up space and move-on accommodation is as important as providing opportunities for large scale premises. This could provide opportunities to increase rates of graduate retention and will be an important factor in the marketing of Durham City as an office location. Occupiers are likely to come from the professional services, financial and health sectors.
Aykley Heads Site
4.51 On the Aykley Heads site there are two large plots at the front of the site which will result from the council's relocation away from County Hall. There are further sites available adjacent to the new Police Headquarters on the former bowling greens, utilising the overflow car park and on the site of the former Durham Trinity School.
County Durham Plan Preferred Options 41 County Durham Plan Preferred Options
4.52 It is estimated therefore that the site can accommodate a total floorspace of around 47,500sqm which using the national OFFPAT/HCA employment densities guide(16) will provide approximately 4000 jobs(17).
4.53 Aykley Heads is dominated by a variety of landscape environments and settings, which any scheme must respect and work with to ensure that the unique setting is preserved. The site contains dense woodland, open grassland, streams and ponds, as well as shaded slopes and open spaces. The space and variety of these green spaces can be utilised for circulation (linking parts of the site and allowing people to pass through), for activity (whether recreation or education) and to allow the buildings to be set in an attractive landscape, which is key asset of the Aykley Heads site. There is also an informal parkland area that is well used particularly with dog walkers. As an integral part of the redevelopment of the site, there is an opportunity to significantly improve this area by providing a high quality parkland which preserves and enhances existing habitats and creates new habitat. The public access into and around Aykley Heads will be retained and improved, creating more attractive gateways into the site particularly from the railway station and Wharton Park.
4.54 Views of the World Heritage Site are a major positive characteristic of the Aykley Heads site. To ensure this remains the case and to similarly protect sensitive views of the World Heritage Site from locations across the city the development of the site must have due regard to these views and the impact buildings, in terms of size and massing, would have. The development of the site should cause no substantial harm to the significance of the World Heritage Site (including cumulative or consequential harm).
4.55 Aykley Heads' location in close proximity to the city's railway and bus stations and on key bus routes, including those used for the Park and Ride, provides excellent access to public transport. New walking and cycle routes will connect the site to surrounding housing, Wharton Park, the railway station and the city centre. It is acknowledged however that access by car and car parking are attractive to private sector employers. In order to ensure that the traffic associated with the new businesses does not have unacceptable impacts on the existing road network, highways improvements will be required. The detail of these improvements will be determined as part of a future planning application when the detail of the final proposal is known. It is likely that some of the funding and delivery of these improvements will be linked to the delivery of the site, whilst some others will occur independently.
Possible Future Opportunities
4.56 The former police playing fields could provide a longer term opportunity to create a further 19,000sqm of floorspace and around 2000 more jobs. However this will depend on the success of the existing strategic employment site and will be considered as part of a future review of the Plan.
How will the Policy be monitored?
Indicator:
1. Gross employment floor space completed at Aykley Heads
Target:
1. 47,500sqm of floorspace completed
16 https://www.gov.uk/government/uploads/system/uploads/attachment_data/file/378203/employ-den.pdf 17 There are currently 2700 people working on Aykley Heads, the vast majority at the Police HQ and Durham County Council. Those associated with the County Council will be relocated elsewhere within the city.
42 County Durham Plan Preferred Options County Durham Plan Preferred Options
Question 8
This is our preferred policy. Do you have any comments?
Distribution of Housing
4.57 As part of the Issues and Options consultation, four different spatial options were presented for comment. Just under 10% of respondents preferred the Main Town Focus option, around a quarter of respondents chose the Sustainable Communities option, just over 5% of respondents chose Sustainable Communities with Central Durham Villages or another option altogether and just over half of respondents preferred the Wider Dispersal option.
4.58 Positive comments made on the Main Town Focus option were that it would concentrate housing in desirable areas and would reduce the need to travel by the private car. However there were concerns focused around the over concentration of development in one location which could affect delivery and direct funding from elsewhere in the county. It was also thought that it would cause traffic congestion and have an unacceptable impact on the character of Durham City and the World Heritage Site.
4.59 The Sustainable Communities option was thought to be a balanced approach to locating development and by focusing on areas with better access to services and facilities maximises opportunities for using public transport, walking and cycling and the associated benefits of improving health and reducing congestion and greenhouse gas emissions. It would also help to ensure that investment continues to be attracted to the county. Disadvantages mentioned included putting unacceptable pressure on Durham City, there is no evidence that it would provide economic or social resilience and it would need the removal of Green Belt land.
4.60 With the Sustainable Communities with Central Durham Villages option identified benefits included easing the pressure on Durham City and injecting money into villages that need a higher standard of living. it would also encourage the development of affordable housing. However disadvantages included that locating housing away from centres of employment would increase commuting and congestion and that a number of these villages were reaching capacity and there were therefore doubts over whether it could be delivered.
4.61 Some of the key advantages of the Wider Dispersal option were thought to be that it increased opportunities for regeneration across the county and could safeguard and enhance existing services in some settlements. It would also not include any Green Belt land and reduce the impact on the historic core of Durham City. However some respondents thought it was not sustainable, would increase traffic and air pollution and cause more out commuting to surrounding areas. There was also concern whether it was deliverable as it did not focus on strong market areas.
4.62 Other options that were put forward included different combinations of the other options and new settlements in East Durham, Central Durham and West Durham.
4.63 In identifying the preferred option for the spatial distribution of housing the comments made during the consultation have been fully considered together with the following principles, which were set out in the Issues and Options and broadly supported. More detail on this is set out in the Spatial Strategy Justification document (18).
18 https://durhamcc.objective.co.uk/portal/planning/cdpev/
County Durham Plan Preferred Options 43 County Durham Plan Preferred Options
Sustainability
4.64 The National Planning Policy Framework (NPPF) makes it clear that the purpose of the planning system is to contribute to the achievement of sustainable development in terms of its economic, social and environmental impacts. Therefore patterns of growth should be managed so that significant development is focussed on locations which are or can be made sustainable. This limits the need to travel and allows the fullest possible use of public transport, walking and cycling by maximising access to services, facilities and employment opportunities.
4.65 To this end The County Durham Settlement Study(19) helps us understand the roles and the access to services and facilities of each of the county's settlements. The Study also assists in understanding the relationship between settlements and how they serve social and community needs, where people shop and go to school, work and leisure. It shows that locating new housing in the county's larger settlements would maximise the opportunity for residents to travel to work and to other services and facilities by sustainable modes of transport. It also shows that Durham City has more employment opportunities, services, facilities, cultural offer, leisure facilities etc. than any other settlement in the county and should therefore play a major role in the spatial strategy for the county. Other towns with a good range of services and facilities include Bishop Auckland, Consett, Newton Aycliffe, Peterlee and Seaham.
4.66 The existing location of employment opportunities and associated commuting patterns (which are likely to remain similar in the future) show that in order to maximise access to jobs, to minimise the increase in commuting and to deliver sustainable patterns of development, the focus for new housing should be the county's larger settlements.
4.67 The spatial strategy does however also identify appropriate quantities of development in other settlements across the county, to sustain their vitality, support new and existing services and facilities and to provide suitable housing for local communities.
4.68 The Sustainability Appraisal(20) assessed the options for the distribution of housing set out in the Issues and Options and its conclusion was that 'overall the Sustainable Communities option provides greater opportunities to deliver sustainable patterns of growth in comparison to the other housing distribution options assessed'. It is therefore considered that the Sustainable Communities option is the most sustainable option for the distribution of housing.
Impact on Economic Growth
4.69 The Government is committed to ensuring that the planning system should help create the conditions in which businesses can invest, expand and adapt. NPPF states that plan-making should positively and proactively encourage sustainable economic growth. It can do this by supporting the delivery of the homes, industrial land and units, infrastructure and successful places that the country needs. Every effort should therefore be made to identify and meet the development needs of an area, and respond positively to wider opportunities for growth. Therefore any option for the distribution of development should be considered in terms of its ability to support economic growth and the regeneration requirements of County Durham.
4.70 The County Durham Employment Land Review shows that the settlements in the A1 and A19 corridors are more likely to be a regional and national draw for business investment. Other settlements such as Bishop Auckland and Consett serve a more local market. In addition some parts of the county have recently or are currently experiencing significant new investment. This includes Hitachi
19 https://durhamcc.objective.co.uk/portal/planning/cdpev/ 20 https://durhamcc.objective.co.uk/portal/planning/cdpev/
44 County Durham Plan Preferred Options County Durham Plan Preferred Options
at Newton Aycliffe with over 1,000 jobs, a £92m investment by GSK in Barnard Castle, a £750m masterplan for Durham University and Durham City Riverside with the new offices for the Passport Office and NS&I and the redevelopment of Milburngate and The Gates.
4.71 To support our economic ambitions and the existing and future investment described above we must also have a complementary housing offer with the right types of housing in the right locations. It is therefore necessary to ensure that homes are being built which meet the needs and aspirations of the county's existing and future population including by identifying sites in the right locations including releasing some land in high value areas. This ensures that our housing market is not over reliant on products such as Help to Buy and will secure additional affordable housing and other supporting infrastructure.
4.72 It is therefore considered that the Sustainable Communities option is the most effective in supporting economic growth as it recognises the importance of settlements in the main economic corridors and those that can support continued investment in the county including by ensuring the right homes are provided in the right places.
Effective Use of Land
4.73 The availability of suitable land is a key driver for the distribution of housing. Environmental designations and physical constraints such as flood risk and topography limit the areas of land available for allocation. Land which may be suitable for new housing is examined in great detail in the County Durham Strategic Housing Land Availability Assessment (SHLAA) resulting in a long list of potentially suitable sites.
4.74 NPPF also encourages the effective use of land, including making as much use as possible of land that has been previously developed (brownfield land), provided that it is viable and not of high environmental value. County Durham has an excellent record of maximising brownfield land with much of the development that has taken place over the last 20 years bringing such land back into use. The council is also committed to the reuse of brownfield land and to this end has joined the Government's Brownfield Register pilot programme. As part of this project we are helping to develop the methodology that has been used for all local authorities to develop and publish their brownfield registers. The County Durham Brownfield Register has been made available as part of the evidence base for the Plan(21). Therefore an important consideration in identifying our allocations has been to maximise the use of viable brownfield land wherever possible.
Viability and Delivery
4.75 Evidence within the Local Plan Viability Study(22), shows that viability and market attractiveness varies significantly across the county with values fluctuating significantly across short distances. This results in Highest Value areas mainly in Durham City and parts of Chester-le-Street, High Value areas principally in Teesdale and South East Durham, Medium Value in much of the rest of the county and Low Value areas mainly in many of the former coalfield communities. The delivery of development, taking into account the reduced availability of public funding and market signals such as land prices and housing affordability, is therefore an important consideration when comparing options for the spatial strategy. Employment land and housing sites therefore need to be located in places where businesses want to invest and people want to live.
4.76 The Local Plan Viability Assessment shows that sites in highest value areas have the highest probability of being delivered. Elsewhere there are some settlements in Central Durham which have potentially reached delivery capacity, suggesting that too much additional housing may ‘flood’ local markets. Mid Durham is considered to be a fluctuating market which may reduce the likelihood of
21 http://durhamcc-consult.limehouse.co.uk/portal/planning/cdpev/ 22 https://durhamcc.objective.co.uk/portal/planning/cdpev/
County Durham Plan Preferred Options 45 County Durham Plan Preferred Options
schemes being delivered. The North and North West Durham monitoring areas are considered to have a good track record of delivery as does the East on the proviso that the Help to Buy: Equity Loan product is not withdrawn. West Durham is attractive to developers and delivery within the South East monitoring area is relatively strong.
4.77 Therefore to ensure that the housing our existing and future residents need is built we must provide a good spread of allocations across the county including in the highest and high value areas where delivery is more certain. The Sustainable Communities option best reflects this approach.
The Chosen Spatial Strategy for the Distribution of Housing
4.78 As a result of the considerations set out above the Sustainable Communities option for the spatial strategy for the distribution of housing is the council's chosen strategy for sustainable development and informs the Plan's housing allocations. It is a dispersed pattern of development located across key settlements in the county and principally focused in and around the towns where the greatest opportunities for employment, services and facilities, public transport and other infrastructure such as healthcare and education exist. This reflects the Plan's Sustainable Development Statement and will ensure we have a balance of housing across the county taking into account the most sustainable locations, market attractiveness and the prospects for regeneration to meet our objectively assessed need for housing. In order to achieve successful places, an appropriate level of new housing is identified in settlements to ensure they can be sustained and be vibrant places to live. Although the distribution of housing and employment land have not been undertaken using the same methodology they are complementary and the location of existing and future employment opportunities has been a key consideration in the selection of the chosen option.
Question 9
This is our preferred spatial strategy for the distribution of housing. Do you have any comments?
46 County Durham Plan Preferred Options County Durham Plan Preferred Options
Policy 5 - Housing Allocations
Policy 5
Housing Allocations
The following sites, as shown on the policies map, are allocated for housing:
Table 5 Housing Allocations
Settlement Ref Site Gross Estimated Greenfield/ Site Yield Area Previously (Ha) Developed Land
DURHAM CITY
Durham City H1 Gilesgate School 2.6 60 PDL
(4/DU/157)
H2 North of Hawthorn House 0.7 20 Greenfield
(4/DU/118)
H3 South of Potterhouse Terrace 0.3 10 PDL
(4/DU/161)
H4 Former Skid Pan, Aykley Heads 1.9 50 PDL
(4/DU/93) Development of the site will:
Maintain and enhance existing links with local service centre
Improve existing landscape/woodland at edge.
H5 Sniperley Park 107.8 1900 Greenfield
(4/DU/101) Development of the site will:
See Policy 6 (Durham City’s Sustainable Urban Extension)
County Durham Plan Preferred Options 47 County Durham Plan Preferred Options
Settlement Ref Site Gross Estimated Greenfield/ Site Yield Area Previously (Ha) Developed Land
H6 Sherburn Road 18.7 420 Greenfield
(4/DU/104) Development of the site will:
See Policy 6 (Durham City’s Sustainable Urban Extension)
CENTRAL DURHAM
Bearpark H7 Cook Avenue 5.6 200 Greenfield
(4/BE/01) Development of the site will:
Contribute to the Western Relief Road.
Deliver local highway improvements including the widening of Colliery Road to a minimum of 6.75m, to complete a loop road connection through the site to Hilltop Road
H8 Cook Avenue North 2.2 50 Greenfield
(4/BE/06) Development of the site will:
Contribute to the Western Relief Road
Deliver local highway improvements including the widening of Colliery Road to a minimum of 6.75m, to complete a loop road connection through the site to Hilltop Road
Langley Park H9 Land Adjacent to Woodlands 0.9 25 Greenfield
(4/LP/12)
48 County Durham Plan Preferred Options County Durham Plan Preferred Options
Settlement Ref Site Gross Estimated Greenfield/ Site Yield Area Previously (Ha) Developed Land
NORTH DURHAM
Chester-le-Street H10 Arizona Chemicals 2.7 60 PDL
(2/CH/40) Development of the site will:
Include access to the Consett and Sunderland Railway Path
Pelton/Newfield H11 Former Roseberry 2.8 65 PDL Comprehensive School (2/PE/11) Development of the site will:
Incorporate access to adjacent playing pitches
H12 Brackenbeds Lane 2.3 50 Greenfield
(2/PE/01) Development of the site will:
Include landscape measure to delineate eastern boundary
NORTH WEST DURHAM
Annfield Plain H13 Former Harelaw School 1.2 30 PDL
(1/AP/29) Development of the site will:
Retain existing broad verge and vegetation along western perimeter to maintain sense of separation with Catchgate
H14 Former Annfield Plain 0.4 10 PDL Community Centre (1/AP/30) Development of the site will:
Incorporate the existing former school building (in accordance with the
County Durham Plan Preferred Options 49 County Durham Plan Preferred Options
Settlement Ref Site Gross Estimated Greenfield/ Site Yield Area Previously (Ha) Developed Land
development brief) unless it can be demonstrated that a better scheme can be achieved through its loss
Consett H15 Former Swimming Baths 0.8 20 PDL
(1/CO/11)
H16 Former Blackfyne School 4.2 100 PDL
(1/CO/89a) Development of the site will:
Provide replacement sports changing room
Contribute towards the improvement of the existing playing fields immediately to the west of the site
H17 East of Muirfield Close 2.0 30 Greenfield
(1/CO/89d) Development of the site will:
Provide a buffer adjoining the Ancient Woodland to the north as defined in site planning brief
H18 Laurel Drive 14.3 290 Greenfield
(1/CO/07, Development of the site will: 1/CO/08) Provide improved pedestrian links with Leadgate local centre
Maintain and enhance existing links across the site
50 County Durham Plan Preferred Options County Durham Plan Preferred Options
Settlement Ref Site Gross Estimated Greenfield/ Site Yield Area Previously (Ha) Developed Land
Include structural planting adjoining the A691
The yield reflects the fact that there will be a primary school on the site
H19 South of Knitsley Lane 13.6 290 Greenfield
(1/CO/42) Development of the site will:
Include structural planting along southern boundary and landscaping within prominent areas of the site
Provide a new community centre for new and existing residents
Complete link road between the existing distributor road and Hownsgill Drive
H20 Rosedale Avenue 2.1 50 Greenfield
(1/CO/16) Development of the site will:
Be accessed from Rosedale Avenue
H21 Chaytor Road 1.5 40 PDL
(1/CO/21)
MID DURHAM
Crook H22 High West Road 19.1 350 Greenfield
(3/CR/02) Development of the site will:
Provide structural planting along northern and western boundaries
County Durham Plan Preferred Options 51 County Durham Plan Preferred Options
Settlement Ref Site Gross Estimated Greenfield/ Site Yield Area Previously (Ha) Developed Land
Incorporate bus, pedestrian and cycle routes within and connecting to, adjoining facilities
Contribute to Western Relief Road
Spennymoor H23 Former Spennymoor Day Centre 0.5 15 PDL
(7/SP/339) Development of the site will:
Incorporate existing trees where feasible
H24 Former Tudhoe Grange Lower 3.7 85 PDL School, Durham Road (7/SP/333) Development of the site will:
Include retention of suitable maintenance access to adjoining sports pitch
H25 Former Tudhoe Grange Upper 6.9 110 PDL School, St Charles Road (7/SP/097) Development of the site will:
Incorporate 15 self- build plots
Retention of vehicular and pedestrian access to adjoining pitches
Incorporation of open space and landscaping within northern part of site to maintain visual separation between Tudhoe Village Conservation Area and Spennymoor
52 County Durham Plan Preferred Options County Durham Plan Preferred Options
Settlement Ref Site Gross Estimated Greenfield/ Site Yield Area Previously (Ha) Developed Land
Willington H26 Land to east of Ash Drive 8.9 200 Greenfield
(3/WI/03) Development of the site will:
Provide structural planting along southern and eastern boundaries
Include a new access from the A690 roundabout
Contribute to Western Relief Road
SOUTH DURHAM
H27 Former Etherley Lane Depot 1.0 10 PDL
(3/BA/50)
H28 Former Chamberlain Phipps 1.6 75 PDL
(3/BA/21) Development of the site will:
Include provision of off- site highways works to mitigate impacts upon local network Bishop Auckland Incorporate amenity mitigation on the site for future residents - these measures should not impinge on the operational requirements of the existing employment uses adjacent to the site
H29 Bracks Road 2.3 50 Greenfield
(3/BA/31a) Development of the site will:
County Durham Plan Preferred Options 53 County Durham Plan Preferred Options
Settlement Ref Site Gross Estimated Greenfield/ Site Yield Area Previously (Ha) Developed Land
Include reinforcement of existing planting along eastern boundary
Incorporate suitable noise attenuation
H30 Copelaw 93.4 600 PDL &
(7/NA/313) Development of the site will: Greenfield
Provide a new primary school
Provide community facilities in the form of a local centre incorporating A1, A2, A3 and A5 where viable and in accordance with other Plan policies
Be accessed from a new junction on the A167 and include the redesign of the existing junction at the north end of Newton Aycliffe and Rushyford roundabout Newton Aycliffe Provide strong pedestrian and cycle links across the A167
Include structural planting along the entire perimeter of the site
Incorporate bus, pedestrian and cycle routes within, and connecting to, adjoining facilities
H31 Eldon Whins 2.3 80 Greenfield
(7/NA/005)
H32 Land at Woodham College 4.4 100 Greenfield
54 County Durham Plan Preferred Options County Durham Plan Preferred Options
Settlement Ref Site Gross Estimated Greenfield/ Site Yield Area Previously (Ha) Developed Land
(7/NA/326) Development of the site will:
Include peripheral landscaping
H33 Cobblers Hall 1.8 50 Greenfield
(7/NA/186)
Shildon H34 Land at Eldon Bank Top 0.5 10 Greenfield
(7/SH/022)
Hunwick H35 Adjacent Hunwick Primary 0.9 25 Greenfield School (3/HU/13)
EAST DURHAM
Peterlee H36 North Blunts 2.4 65 Greenfield
5/PE/01a, Development of the site will: 5/PE/01b) Reinforce existing planting along western boundary
Provide 15m buffer adjoining the Ancient Woodland to east
Provide new or improved green infrastructure and/or contribute to coastal access measures to off- set increased recreational pressure resulting from development to satisfy the Habitat Regulations Assessment (HRA)
Seaham H37 Seaham Colliery 10.8 335 PDL
(5/SE/09) Development of the site will:
County Durham Plan Preferred Options 55 County Durham Plan Preferred Options
Settlement Ref Site Gross Estimated Greenfield/ Site Yield Area Previously (Ha) Developed Land
Include structural planting along western boundary
Provide new or improved green infrastructure and/or contribute to coastal access measures to off- set increased recreational pressure resulting from development to satisfy the Habitat Regulations Assessment (HRA)
H38 Former Seaham School 3.7 95 PDL & Greenfield (5/SE/21) Development of the site will:
Provide new or improved green infrastructure and/or contribute to coastal access measures to off- set increased recreational pressure resulting from development to satisfy the Habitat Regulations Assessment (HRA)
Include structural planting along western boundary
H39 Camden Square 0.6 15 PDL
(5/SE/13)
Murton H40 Murton Colliery 5.6 130 PDL
(5/MU/09) Development of the site will:
Provide new or improved green infrastructure and/or contribute to coastal access measures to off- set increased recreational pressure resulting from development to satisfy the Habitat Regulations Assessment (HRA)
56 County Durham Plan Preferred Options County Durham Plan Preferred Options
Settlement Ref Site Gross Estimated Greenfield/ Site Yield Area Previously (Ha) Developed Land
Thornley H41 Dunelm Stables 3.3 50 Greenfield
(5/TH/06) Development of the site will:
Include structural planting along its southern boundary
WEST DURHAM
Barnard Castle H42 Grove Works 1.3 35 PDL
(6/BC/01)
Wolsingham H43 Land off Leazes Lane 3.2 40 PDL
(3/WO/20) Development of this site will:
Retain and enhance structural landscaping
Total 6295
Planning applications for housing on these allocations, that are in accordance with the site specific requirements in this policy and any infrastructure constraints identified in the Infrastructure Delivery Plan, will be approved if the proposed scheme is in accordance with other relevant policies in the Plan.
4.79 We believe the sites allocated in this policy are the most appropriate to accommodate the new homes we need to ensure that we meet our Objectively Assessed Need (OAN), making the most efficient use of land and utilising previously developed land where it is available and viable. These allocations, together with the other elements of housing supply such as sites with planning permission and under construction, will provide the range and choice of sites to meet our needs and deliver the preferred spatial strategy for the distribution of housing in County Durham.
4.80 By allocating a site we are establishing the principle that the development of the site for housing is acceptable. Site allocations are important because they help local people understand what will happen in their neighbourhood in the future and give certainty to developers and landowners. They also allow the council and infrastructure providers to assess the cumulative impact of development and enable us to plan for future needs such as transport schemes, school places and water infrastructure. Allocations are positive policies which promote the development of a site and help ensure the right type of development happens. If a site is not allocated, it may still be suitable for
County Durham Plan Preferred Options 57 County Durham Plan Preferred Options
development, subject to other relevant policies in the Plan and in particular Policy 7 (Development on Unallocated Sites in the Built Up Area). When identifying sites consideration has been given to likely delivery to ensure a continuous supply of suitable available land can be maintained.
4.81 In order to ensure choice and competition in the market for land every local authority is expected to demonstrate that they have a rolling five year supply of deliverable sites, calculated against the OAN in Policy 2 (Quantity of Development), with a buffer of 5% or 20% added depending on past delivery.
4.82 In a local plan we are expected to identify developable sites or broad locations for years 6-10 of the Plan period and, where possible, for years 11-15. To fulfil these requirements and to provide additional certainty we have chosen to identify allocations for the full Plan period up to 2035. Table 1 in the supporting text to Policy 2 (Quantity of Development) shows that our total housing requirement is 25,992. Once the other sources of supply are taken into account we need to allocate sufficient sites to accommodate 6,272 houses.
4.83 It is likely that in the future a number of Neighbourhood Plans will also allocate housing sites. These will be in addition to those in the County Durham Plan and will provide some additional flexibility in allowing us to meet our OAN.
4.84 It should be noted that the number of homes identified in this Plan is a target and not a ceiling, if housing completions do exceed this level then this will be reflective of a buoyant housing market.
Strategic Housing Land Availability Assessment
4.85 The Strategic Housing Land Availability Assessment (SHLAA)(23) is the primary source of potential housing sites to be considered for allocation. Sites in the SHLAA have been derived from a number of sources including:
Previous unimplemented housing allocations;
Surplus employment sites identified in the Employment Land Review;
Sites submitted by land-owners and developers;
Sites proposed by communities, Parish and Town Councils and members of the public; and
Other sites known or owned by the council.
4.86 All sites have been assessed by a multi-disciplinary team which considered: settlement pattern and form; road access and highway safety; flood risk; impact upon landscape, ecology and heritage, as well as other planning considerations such as accessibility to services and facilities and adjoining land uses. Infrastructure constraints; viability; deliverability; and marketability were also considered. All 'Green' and 'Amber' sites were then subject to Sustainability Appraisal to give an understanding of their sustainability credentials and any possible mitigation requirements. This was undertaken against the criteria in our Sustainability Appraisal screening matrices (24). The SHLAA Partnership (the council, The Home Builders Federation, Registered Providers, Estate Agents and community representatives) have collectively considered the resulting categorisation of sites as 'Green' (potentially suitable for housing), 'Amber' (potentially unsuitable) and 'Red' (unsuitable) and delivery time frames for suitable sites. This three stage process, which was undertaken in consultation with external agencies and infrastructure providers, resulted in the identification of the sites to be considered as the allocations in this policy.
23 https://durhamcc.objective.co.uk/portal/planning/cdpev/ 24 https://durhamcc.objective.co.uk/portal/planning/cdpev/
58 County Durham Plan Preferred Options County Durham Plan Preferred Options
Selecting the Allocations
4.87 The spatial strategy for the distribution of housing section is informed by the Plan's Sustainable Development Statement. For the reasons set out previously we have chosen the Sustainable Communities option as we believe it the most appropriate. Although the percentages set out in the Issues and Options were indicative to help distinguish between the different options, those for the Sustainable Communities option were used as a starting point for the distribution of houses and identifying allocations. However we also have to take into account the location of existing commitments and the availability of suitable, viable sites. We therefore used the following approach to identify where housing was required to meet our OAN and our chosen distribution of housing and to identify the specific allocations:
The starting point was the percentage figures used for each local plan monitoring area in the Sustainable Communities option identified in the Issues and Options(25). These were then applied to the total OAN (identified in Policy 2 (Quantity of Development) to give an overall number of houses to be planned for in respect of each monitoring area;
The components of the existing housing supply including an allowance for properties coming back into use and demolitions were applied accordingly to the figures. The small site allowance of 130 per annum was divided between the monitoring areas in line with the above percentages and subtracted from the figures;
The number of commitments which exist in each monitoring area was then also subtracted, having included a discount of 10% from the commitments to take account of those that may not be delivered across the Plan period(26);
4.88 This exercise resulted in total residual for allocation of 6,272 houses to be allocated across the county to meet the OAN. The number to be allocated in each monitoring area varied according to the impact of the other elements of housing supply. To identify the allocations we then used the following approach:
Using the list of settlements in the order identified in the Settlement Study(27) suitable, deliverable, viable(28) brownfield sites were identified in each monitoring area;
If the list of brownfield sites was insufficient to meet the residual for allocation for that area the exercise was repeated but this time suitable, deliverable, viable greenfield sites were identified;
If this was still insufficient the remaining houses were allocated to other monitoring areas where there were additional suitable, deliverable sites. It was only once these additional suitable deliverable sites were exhausted that the Green Belt was considered.
4.89 The inability to meet our OAN on suitable, deliverable, viable sites supports the exceptional circumstances which justifies consideration of sites in the Green Belt(29). Therefore in line with the Sustainable Communities option once the suitable brownfield sites and greenfield sites (non Green Belt) in Durham City were identified the residual figure that remained was allocated on sites in the Green Belt as set out in Policy 6 (Durham City's Sustainable Urban Extensions)(30).
25 Durham City 17%, Central Durham 12%, North Durham 7%, North West Durham 13%, Mid Durham 16%, South Durham 15%, South East Durham 1%, East Durham 15%, West Durham 4%. 26 Total commitments of 16,760 minus 10% (1676) equals a figure of 15084. 27 https://durhamcc.objective.co.uk/portal/planning/cdpev/ 28 Viability as determined in the Local Plan Viability Study https://durhamcc.objective.co.uk/portal/planning/cdpev/ 29 See introduction to Policy 6 (Durham City's Sustainable Urban Extensions). 30 https://durhamcc.objective.co.uk/portal/planning/cdpev/
County Durham Plan Preferred Options 59 County Durham Plan Preferred Options
4.90 The resulting distribution although not precisely the same as that in the Issues and Options is however similar enough (31) that it would have the same benefits and advantages that resulted in its selection as the most appropriate option.
Site Delivery and Yield
4.91 In some cases the site allocations require specific on site improvements such as structural landscaping which are needed to ensure a site does not have an unacceptable adverse impact. These have been identified in the policy and must be addressed when planning applications are submitted for these sites. There may also be infrastructure requirements, as identified within the Infrastructure Delivery Plan, which may have an impact on the delivery and timing of the sites and will need to be addressed. All sites will need to include sustainable drainage features to mitigate for run-off and flood risks, where relevant. These may include areas particularly at risk of surface water and ground water flooding, and sites which fall within source protection zones.
4.92 The policy also includes an estimate of the number of dwellings to be delivered on each site. This was determined by adopting an average density (30 houses to the hectare) and net developable area. Where we were aware of a specific site constraint e.g. topography this was also taken into account. These yields enable us to confirm that the sites allocated are sufficient to contribute to the housing supply fulfilling the OAN. It should be noted however that they are only indicative and could be lower or higher depending on the specific circumstances of each site. They will therefore will not be used as a reason for refusing a future scheme which otherwise conforms with the relevant policies in the Plan.
How will the Policy be monitored?
Indicator:
1. Number of units approved and completed on allocated housing sites
2. Status of five year land supply/delivery test
Target:
1. Annual Housing Delivery Target - based on the Housing Trajectory
2. At least a five year supply in accordance with the NPPF
Question 10
These are our preferred housing allocations. Do you have any comments?
31 Durham City 15% (-2%), Central Durham 12% (no change), North Durham 7% (no change), North West Durham 12% (-1%), Mid Durham 16% (no change), South Durham 16% (+1%), South East Durham 2% (+1%), East Durham 16% (+1%), West Durham 4% (no change).
60 County Durham Plan Preferred Options County Durham Plan Preferred Options
Question 11
Are there any other housing sites that should be allocated? Please give reasons.
Policy 6 - Durham City's Sustainable Urban Extensions
4.93 Durham City is the largest settlement in the county with a total population of 44,886 people (Census 2011) and employing 33,940 people (BRES, LSOA, 2016). This is substantially greater than the next largest towns across the county as set out within the Spatial Strategy Justification (32). Durham City also serves as the key town in terms of access to services and facilities, offering significantly more than the next town Bishop Auckland(33). Durham City also performs a key supporting role for many of its surrounding villages by providing services such as secondary education. These together with Durham City's role as a transport hub, including Durham Railway Station and bus station, indicate that the city should play an important role in meeting housing needs and delivering sustainable patterns of growth.
4.94 Durham City is also steeped in history and heritage, home to the Durham Castle and Cathedral World Heritage Site and Durham University, which is internationally renowned and attracts some of the highest quality students in the UK and the world. These key assets contribute to the city's identity and distinctiveness.
4.95 A full and robust assessment of brownfield sites and other urban land has been undertaken within the Strategic Housing Land Availability Assessment (SHLAA)(34) and the Brownfield Land Register(35) to understand the level of suitable, deliverable land across the county.
4.96 As at the 1st April 2018, 1166 houses had planning permission within Durham City. This is significantly lower than the surrounding Central Durham monitoring area where the number of houses with planning permission was 2,233. Without the release of Green Belt land, Durham City would only be able to contribute 5% of the total housing need of 25,992 houses(36). This is not sufficient for what is the county's largest and most sustainable settlement. Furthermore the Local Plan Viability Assessment (37) confirms that Durham City is the highest value area of the county, in terms of viability and delivery, and is therefore the best opportunity to meet the county's housing and affordable housing needs. This approach aligns with the Plan's spatial strategy and distribution of housing.
Exceptional Circumstances
4.97 We attach great importance to the Green Belt. However, and as required by the National Planning Policy Framework (NPPF) we believe there are exceptional circumstances which justify the removal of some land from the Green Belt. The NPPF is clear that when alterations to the Green Belt are being contemplated that the need to promote sustainable patterns of development should be taken into account. The exceptional circumstances are set out in the Exceptional Circumstances document (38) and in summary are:
32 https://durhamcc.objective.co.uk/portal/planning/cdpev/ 33 As set out in the County Durham Settlement Study ( https://durhamcc.objective.co.uk/portal/planning/cdpev/ ). 34 https://durhamcc.objective.co.uk/portal/planning/cdpev/ 35 https://durhamcc.objective.co.uk/portal/planning/cdpev/ 36 1166 commitments plus 140 on proposed allocations. 37 https://durhamcc.objective.co.uk/portal/planning/cdpev/ 38 https://durhamcc.objective.co.uk/portal/planning/cdpev/
County Durham Plan Preferred Options 61 County Durham Plan Preferred Options
Ensuring sustainable patterns of development are achieved by building on Durham City's position as the county's employment centre, regional transport hub and regional centre for services and facilities, such as secondary schools and health facilities. This would provide greater opportunities to achieve locational sustainability and secure social, economic and environmental improvements compared to a more dispersed housing distribution;
Maximising the number of journeys undertaken by sustainable means such as walking, cycling and public transport and minimising overall journey distances and times. This will help address congestion and associated issues such as air quality and carbon emissions;
Providing the right type of housing to meet the needs and aspirations of existing and future residents and a housing stock which supports the economy of the county and the need for more and better jobs;
Helping address economic under-performance across the county by supporting the economic potential of Durham City and the delivery of Aykley Heads by capturing business and investment growth, retaining graduates and creating opportunities to increase and retain spending in the city, supporting an improved retail offer and reducing the impact of the fluctuation in population between University terms; and
Maximising the delivery of affordable housing and other infrastructure by locating development in the highest viability areas around Durham City.
Policy 6
Durham City's Sustainable Urban Extensions
In order to meet housing need and to promote sustainable patterns of development, land at Sniperley Park and Sherburn Road, as shown on the policies map, are allocated for planned urban extensions and will be removed from the Green Belt. Development is required to be comprehensively masterplanned and to demonstrate how the phasing of development on these sites will have regard to the provision and timing of the infrastructure and services necessary to support them.
The sites will deliver attractive, high quality design incorporating sustainable development principles, adopting sustainable construction methods, and using appropriate densities across the sites in accordance with Policy 31 (Sustainable Design in the Built Environment). Design codes will be utilised to ensure distinctive, high quality design outcomes for the sites.
The sites will incorporate an appropriate mix of house types and tenures to reflect housing need including housing for older people and affordable housing in accordance with Policy 16 (Addressing Housing Need). Development will comprise of:
1. 1900 houses at Sniperley Park; and
2. 420 houses at Sherburn Road.
62 County Durham Plan Preferred Options County Durham Plan Preferred Options
Sniperley Park a. Sniperley Park will be a sustainable urban extension incorporating a centrally located local centre which will act as the focus for community activity, including convenience retail provision for A1 floorspace and an allowance for A2, A3 and A5 units to facilitate a viable and vibrant community. The local centre will also include a building suitable to be used as a health centre; b. A new primary school or schools and associated playing pitches will be provided of a scale which will meet the expected requirement for school places generated by the new housing development. The primary school/s should be readily accessible to public transport, walking and cycling routes and incorporate mini soccer pitches; c. The development will facilitate the relocation of the Household Waste Recycling Centre from Potterhouse Lane to enable the improvement of current provision in an appropriate location to be agreed with the local planning authority; d. Structural landscaping will be required along the A167 and the southern edge of the new road from the A691 to the Pity Me Roundabout to ensure suitable screening and that the perception of an extension to Durham City is minimised; e. A surface and foul water drainage management plan incorporating Sustainable Drainage Systems will be required with no further water draining into the Blackdene Burn. Where possible wider opportunities for improvement of local water quality should be explored; f. The design of development in the vicinity of Sniperley Hall and Farm will have regard to their character and setting, and the recognition of the area as an Historic Park and Garden of Local Interest, including through the provision of public open space and the use of reduced housing densities. The woodlands in that area will be retained; g. As a major benefit to new and adjoining existing residents and as a compensatory improvement to offset the removal of land from the Green Belt, a linear country park will be provided in perpetuity through the centre of the site. It will run from the mature woodland at Folly Plantation and habitats of the former Cater House Pit to the parklands of Sniperley Hall in the west to Folly Bridge in the east. Within the country park new and improved linkages with the wider countryside and the urban areas to the east will also be included; h. Opportunities for a district heating network will be explored given the site's proximity to Lanchester Road Hospital and Aykley Heads; i. In order to achieve sustainable and cohesive communities, the development must be connected to the existing development to the east of the A167 through suitable, convenient, safe and attractive cycleways and footpaths; j. The expansion of the Sniperley Park and Ride facility will be required. Attractive and safe links between the housing and the existing Park and Ride facility will be created to maximise its use by residents; and
County Durham Plan Preferred Options 63 County Durham Plan Preferred Options
k. Upgrade and realign Trout's Lane and Potterhouse Lane from the A691 to Pity Me Roundabout, improving access into the site and forming part of the Northern Relief Road, with a new roundabout provided on the B6532 and forming the northern boundary of the development;
l. The build out of Sniperley Park is reliant on the delivery of the Western Relief Road and it will therefore be required to contribute to funding the Western Relief Road, together with associated improvements, through the use of Section 106 and/or Section 278 agreements. An agreed Section 106 for the delivery of the Western Relief Road will be required in perpetuity to the full masterplanned site and in advance of any planning permission. A contribution to the implementation of the Durham City Sustainable Transport Delivery Plan will also be required.
Sherburn Road
m. Sherburn Road will be developed to help support regeneration efforts in the adjoining estate by offering a greater diversity of housing offer within the area;
n. The design of Sherburn Road will provide a positive gateway for Durham City particularly from the A1(M) and protect the character and integrity of Bent House Farm. New development must also be kept above the 80 metre contour line to protect the character of Old Durham Beck and Old Durham;
o. Outward views to the Castle and Cathedral World Heritage Site will be retained and framed;
p. A community building will be incorporated on site or the development will deliver the improvement of an existing community building on the Sherburn Road Estate;
q. Developer contributions will fund the necessary additional school places that are generated by the new housing development;
r. There is an opportunity for Sherburn Road to deliver a combined Sustainable Drainage attenuation scheme in order to manage surface water drainage into the Old Durham Beck which will deal with surface water from the development as well as exploring the potential to deal with drainage from the A1(M) with Highways England;
s. Compensatory improvements to the remaining Green Belt will be sought which provides for areas of green infrastructure, the improvement of ecosystems including Old Durham Beck and access linking through to Pelaw Woods and the city centre;
t. The woodland on the boundary with the A1(M) should be enhanced to ensure appropriate screening and noise attenuation. The planting on the 80 metre contour should be sufficient and at least 20 metres wide, to ensure that the perception of the extension of Durham City is minimised in views from the A1(M). This area will remain in the Green Belt; and
u. The development must be integrated with existing development to the north of the A181 and west of Bent House Lane, including facilitating safe and convenient crossing points for all users to ensure sustainable and cohesive communities. An enhanced recreational route attractive to all users linking Sherburn Road to Durham city centre must also be provided.
64 County Durham Plan Preferred Options County Durham Plan Preferred Options
In order to reduce the dominance of car traffic and improve the permeability, both sites will incorporate convenient, safe and high quality bus, pedestrian and cycle routes within, and connecting to, adjoining facilities. A Transport Assessment and Travel Plan for each site will also be required to ensure that reliance on the private car is reduced and to mitigate the impact of increased traffic in accordance with Policy 23 (Promoting Sustainable Travel) and Policy 24 (Durham City Transport). The movement frameworks of each site should also incorporate any relevant schemes within the Durham City Sustainable Transport Delivery Plan.
The sites will incorporate an interconnected network of good-quality, multi functional green infrastructure including an adequate supply of different types of open space, in accordance with Policy 28 (Green Infrastructure). An appropriate and enhanced landscape structure with clearly defined boundaries will also be developed to ensure permanent Green Belt boundaries which are capable of enduring beyond the Plan period.
4.98 In accordance with the Plan's chosen spatial strategy and housing distribution, and after demonstrating exceptional circumstances alongside a comprehensive assessment of the Green Belt(39), sites at Sniperley Park and Sherburn Road have been identified as suitable, sustainable urban extensions. The Green Belt Assessment, which has taken into account advice from the Planning Advisory Service, other best practice and discussions with Historic England, found that both sites did perform a role against the five purposes as set out in the National Planning Policy Framework (NPPF). However the Exceptional Circumstances document (40)concludes that the benefits associated with he development of these sites in line with the Plan's spatial strategy outweighs the harm to the Green Belt.
4.99 These sites will be developed to the high standards necessary to make them attractive and sustainable places to live. Although some specific policy cross-references are mentioned in this policy, future planning applications for the strategic sites will conform with any relevant policies of the Plan.
4.100 The sustainable urban extensions to Durham City will become strong, vibrant and healthy communities by creating a high quality built environment using an agreed design code and adopting principles of the Garden City movement including accessible local services. The use of clear boundaries such as Potterhouse Lane and the provision of structural landscaping where required will create strong and defensible boundaries to the Green Belt which are required to ensure permanence. The areas deleted from the Green Belt will be contiguous with the red line boundaries of the proposed allocations with the exception of the Fire Station on the A691 which will also be removed to leave a more logical boundary. The 20 metre woodland planting strip to the south of Sherburn Road will remain in the Green Belt.
4.101 Compensatory improvements will be made to the remaining Green Belt particularly where opportunities exist to create country parks and to deal with existing environmental issues which currently exist. Ecological improvements should be sought alongside the protection of species and habitats. Any proposal will need to demonstrate how net gains will be achieved as well as any archaeological impacts.
39 https://durhamcc.objective.co.uk/portal/planning/cdpev/ 40 https://durhamcc.objective.co.uk/portal/planning/cdpev/
County Durham Plan Preferred Options 65 County Durham Plan Preferred Options
4.102 In order to ensure a wide choice of high quality homes which cater for the needs of different groups including families with young children, older people, people with disabilities, self builders, it is envisaged that the sites will be developed by a number of builders, providing different products across the sites working to overall masterplans.
Sniperley Park
4.103 Sniperley Park is predominantly agricultural land, although there are also a number of existing playing pitches and a small local wildlife designation within the site. It is situated immediately to the east of Framwellgate Moor and Pity Me and to the south of Sacriston. The site’s eastern boundary follows the A167 Durham Road and the northern boundary is along Potterhouse Lane and Trout's Lane. New College, Durham is sited adjacent to the southern end of the site with residential development extending northwards. Sniperley Hall historic park of local interest with its walled gardens and parkland and Lanchester Road Hospital are located along the western boundary. Sniperley Park and Ride is immediately to the south of the site at the junction of the A167 and the A691.
4.104 The site rises gradually northwards to a ridge at the northern extent providing a strong visual boundary from higher ground. Views outwards from the site are semi-rural in character to the north and west but become increasingly urban closer to the A167 in views towards the settlement edge. The site does not form part of the setting to the World Heritage Site (WHS) and views of Durham City and the WHS from the site are very limited owing to the historic core being generally screened from view by intervening topography and buildings.
4.105 The development of Sniperley Park will deliver 1,900 new homes along with associated retail, services and facilities contributing to meeting housing needs and creating a viable, vibrant and self-sustaining mixed community. It will also promote innovative approaches to sustainable design which reflect current best practice in order to deliver a sustainable development supported by appropriate supporting utilities and infrastructure.
4.106 The new local centre which will include retail, community and other services will be located adjoining the B6532 to ensure access to public transport and provide a focus for the development. Either one new primary school or two smaller ones will also be provided. An upgraded and realigned road linking the A691 and Pity Me roundabout will improve access to the site, form its northern boundary and be part of the Northern Relief Road.
4.107 The site will be an exemplar of design quality and sustainable development and include a strong landscape framework and green infrastructure network that will be provided to capitalise on the site’s natural features, ensure integration with the surrounding landscape and provide compensatory benefits to offset the loss of Green Belt. The mature woodland at Folly Plantation and habitats of the former Cater House Pit will be retained within the development as a part of a linear country park. The country park will be retained in perpetuity and will extend to approximately 35 hectares through the centre of the site from the parklands of Sniperley Hall in the west to Folly Bridge in the east. Improved linkages with the wider countryside and to the urban areas to the east of the site will be provided to ensure beneficial enjoyment of the area from the residents of the site and those living nearby. The wildlife potential of these areas and across the wider site will be enhanced and development will embrace environmental standards to provide an attractive living environment, including opportunities for recreation. Enhanced opportunities for sustainable access to the city centre and surrounding areas for public transport, walking and cycling, will also be created.
4.108 The Durham City Playing Pitch Action Plan (PPAP)(41) indicates that there is an adequate supply of senior football pitches in the Durham City area even after considering the loss of pitches at Sniperley Park. There is however a requirement to provide additional mini soccer pitches to meet latent demand from teams based within the area should their existing central league venues in
41 https://durhamcc.objective.co.uk/portal/planning/cdpev/
66 County Durham Plan Preferred Options County Durham Plan Preferred Options
Sunderland cease, or change to home and away format. Whilst the PPAP recommends mitigating latent demand by the conversion of surplus senior pitches on specified sites, on a 1:4 ratio, it will be necessary to incorporate some additional mini pitches at the new primary school/s which can be used both by the school and by community teams via a formal community use agreement.
Relationship with Western Relief Road
4.109 Traffic modelling undertaken to accompany the Plan demonstrates that the build out of Sniperley Park will exacerbate existing traffic issues on the A167 therefore the development of the site will require the additional capacity introduced into the highway network by the Western Relief Road. The Plan therefore requires a contribution to the funding of the Western Relief Road. Contributions to the implementation of the Durham City Sustainable Transport Delivery Plan will also be required. Transport Assessments will be required to show how the build out of the site will relate to the completion of the Western Relief Road.
Sherburn Road
4.110 The site is located on the eastern edge of Durham City close to Carrville and Belmont. The A181 Sherburn Road forms the northern boundary of the site. This road serves as a significant artery for the city accessing the eastern villages and beyond to the Tees Valley and the A19. Although the A1(M) forms the eastern boundary of the site it is not directly accessible, the nearest point of access being Junction 62 some 2km to the north. The site forms part of the plateau of high land which includes most of Gilesgate and Belmont. To the south the land falls steeply to the River Wear. Further to the east and south east the land rises steeply to form the Magnesian Limestone Escarpment.
4.111 Sherburn Road will create a sustainable urban extension with 420 new homes. It will provide regeneration benefits to the wider Sherburn Road area by adding to the mix of housing opportunities, improve access to jobs, encourage employment and higher incomes in a deprived area of the city. The site will be one of the first visible signs of Durham City when travelling northwards on the A1(M) and should therefore present an attractive gateway to the city. The site also lies in the backdrop of the World Heritage Site in some views from the west although it is largely screened by existing housing. The existing woodland along the boundary with the A1(M) will be strengthened to protect against any perceived increase in the scale of Durham City.
4.112 In order to protect the character of Old Durham Beck and Old Durham, no housing will be built below the 80m contour. The character and integrity of Bent House Farm will also be protected. The development should maximise pedestrian links to Durham City and the River Wear, incorporate Bent House Lane and provide a link to the existing Sherburn Road Estate. The remainder of the site on the southern boundary will then be landscaped and integrated with the compensatory improvements to the remaining area of Green Belt nearby to enhance residents and the wider community's enjoyment and its value for wildlife.
How will the Policy be monitored?
Indicator:
1. Gross housing units approved and completed by site
Target:
1. Annual Housing Delivery Target - based on the Housing Trajectory
County Durham Plan Preferred Options 67 County Durham Plan Preferred Options
Question 12
This is our preferred policy. Do you have any comments?
Policy 7 - Development on Unallocated Sites in the Built Up Area
Policy 7
Development on Unallocated Sites in the Built Up Area
The built up area is:
Land and buildings contained within the existing built form of a settlement;
Previously developed land adjoining the edge of a settlement area where it is physically well contained by existing built development; or
As defined by a boundary contained in a Neighbourhood Plan.
The development of sites within the built up area that are not allocated in the Plan or in a Neighbourhood Plan will be permitted provided the proposal accords with all relevant development plan policies and:
a. Is compatible with and is not prejudicial to any existing, allocated or permitted use of adjacent land;
b. Does not contribute to coalescence with neighbouring settlements or result in an unacceptable encroachment into the countryside;
c. Does not result in the loss of land within an otherwise built up frontage that has recreational, historical, ecological or visual amenity value which cannot be adequately mitigated or compensated for;
d. Is appropriate in terms of scale, design, layout and location to the character, function, form and setting of the settlement to which it relates;
e. Will not be prejudicial to highway safety or network capacity;
f. Has good access by sustainable modes of transport to relevant services and facilities both within the settlement to which it relates and beyond; and
g. Does not result in the loss of a settlement's last community building, service or facility unless it has been demonstrated that it is no longer viable or has not been purchased by the community following the procedures set out in the Community Right to Bid.
68 County Durham Plan Preferred Options County Durham Plan Preferred Options
4.113 This policy recognises that in addition to the development of specifically allocated sites, there will be situations where future opportunities arise for additional new development over and above that identified in the development plan for the area. This policy sets out the circumstances where such opportunities will be acceptable. This will include new build housing on suitable previously developed or greenfield sites, as well as conversions to accommodate new uses, the expansion or replacement of existing buildings, along with proposals including for example live/work, community facilities, leisure, specialist living accommodation, small scale retailing, employment, infrastructure and other economic generating uses.
4.114 This policy applies to new development proposals within existing built up areas only, with the exception of householder development and minor alterations to existing buildings which do not involve a change of use or increased floor space. New development proposals falling outside of built up areas will be considered against Policy 11 (Development in Countryside).
4.115 For the purposes of this policy a site will be considered to be within the built up area if it is within a settlement boundary that is defined in a Neighbourhood Plan or is contained within the main body of existing built development of any other settlement. In the latter case and with the exception of recreation land, land within a large domestic or commercial curtilage, farm yards and cemeteries, land on the edge of a settlement may be considered to be part of the built up area where it is physically well contained by existing buildings or established physical features and its development would not result in contributing to coalescence with neighbouring settlements or encroachment into the countryside that would cause significant adverse landscape or townscape impact.
4.116 We want to ensure that new development does not detract from the existing form and character of settlements and will not be harmful to their surroundings. Therefore, not all undeveloped land within the built up area is suitable for development. However, in the case of smaller linear settlements the infilling of small gaps within an otherwise built up frontage that have no recreational, historical or amenity value may be permissible. Where buildings already exist on site, their retention will be encouraged where they make a positive contribution to the area or have intrinsic value. In determining whether a site is appropriate for new development the relationship with adjacent buildings and the surrounding area will be taken into account along with the current use of the site and compatibility of the proposal with neighbouring uses.
4.117 In the case of conversions and replacement buildings, proposals should not significantly increase the size or impact of the original building where this would have an adverse affect on the character of the surrounding area or the amenity of neighbouring occupiers. Similarly, the sub-division and intensification of dwellings should not result in concentrations of such dwellings to the detriment of the range and variety of the local housing stock.
4.118 Under the Localism Act, communities can nominate important local buildings and facilities as 'assets of community value' (e.g. shops, public houses, cultural buildings.) for inclusion on a central list held by the council. If the owner of a building on this list wishes to sell it they must then conform to the Community Right to Bid procedure. This means that if the community are interested in buying the asset they have 6 months to prepare a bid to buy it before the asset can be sold. Proposals which would result in the loss of a community facility, which is the last remaining facility of that type will be resisted unless it can be demonstrated that the facility is no longer viable or it was not purchased by the community following the procedures set out in the Community Right to Bid. To demonstrate that such a building or facility is not viable the applicants must be able to evidence that the premises has been advertised as a going concern in the press, online and on-site, at least four times within a six month period and all reasonable offers have been explored.
County Durham Plan Preferred Options 69 County Durham Plan Preferred Options
How will the Policy be monitored?
Indicator:
1. Percentage of housing units permitted and completed on unallocated sites
2. Amount of employment space permitted and completed on unallocated sites
3. Amount of retail floor space permitted beyond a defined town centre.
4. Number of community facilities lost that were the last such facility in the setllement
Target:
1. No Target
2. No Target
3. No Target
4. Zero
Question 13
This is our preferred policy. Do you have any comments?
5 Core Principles
5.1 The council deals with approximately 4,500 planning applications per year and these can be wide ranging from works to trees and single storey extensions through to major applications for housing sites and business premises. Planning applications are to be determined in accordance with the statutory development plan, unless other material considerations indicate otherwise. Therefore across the county this means the 'saved' policies of the adopted Development Plans provide the framework for determining planning applications together with the National Planning Policy Framework (NPPF) and other material considerations. The weight attributed to each policy is dependent on its consistency with the NPPF.
5.2 The Plan is the opportunity to provide a consistent planning policy framework across the county. This will provide certainty to communities, businesses and developers to ensure that planning applications can be processed and decisions made in a timely, consistent and appropriate manner. The following sections, in conjunction with the Vision and Objectives, set out in the preferred options on a thematic basis.
70 County Durham Plan Preferred Options County Durham Plan Preferred Options
Building a strong competitive economy
5.3 As clearly set out at the start of this Plan a key priority of the council and its partners is to improve economic performance and reduce deprivation in County Durham to ensure that all of its residents have equal access to quality job opportunities. Over the last 30 years the county has gone through significant structural economic change with the decline of its traditional industries and the pressure of globalisation.
5.4 Over this period Government initiatives and public sector investment enabled the development of regeneration programmes and settlement renewal. However, despite the receipt of significant resources and sustained efforts to attract inward investment to support the creation of new jobs and businesses, economic performance has been mixed and areas of deprivation within the county continue to exist. The fundamental challenge therefore is to improve the economic performance of the county.
5.5 We also need to be aware of the regional context and major proposals in our neighbouring authorities. In particular, we will need to monitor the progress of the proposed International Advanced Manufacturing Park (IAMP), a 100 hectare site to the west of the A19 near Sunderland. The park would provide modern business premises close to existing employers and would build on the region's advanced manufacturing heritage, creating up to 5,200 new jobs. Given the proximity to County Durham it is likely that there will be some impacts on the county which will need to be assessed as more detail becomes available.
5.6 As well as ensuring that the county has the right levels of employment land in the right locations, we believe that the Plan should also identify locations where new and emerging sectors may seek to locate into County Durham. This approach is advocated in the National Planning Policy Framework (NPPF) and the recent investment of Hitachi at Newton Aycliffe is an example of where this may create the potential for further new investment. The allocation of additional employment land within such locations would allow us to exploit these opportunities.
5.7 Another factor which would impact on the future economy of the county is its changing age structure. Unprecedented demographic change due to the population ageing and the reduction of the number of people that are economically active, makes it challenging to maintain an adequately sized labour force and to maintain and increase the overall rate of employment. This is particularly the case in County Durham where the average age of the population is projected to increase considerably over the next 25 years, with a larger proportion of the population in the older age-groups.
Durham University
5.8 Durham University makes a strong, positive contribution to the local, regional and UK economy, for example through direct investment, as a large employer, an extensive supply chain and staff and student spending. It produces high calibre graduates who in turn generate wealth. The University also participates in the Knowledge Transfer Partnership – a UK wide initiative designed to enable businesses to access the knowledge and expertise available within UK Universities and is a centre for research in its own right.
5.9 The University’s new academic strategy identifies the future size and shape of the University which will be needed to support their vision of 'world-leading in research, education and the wider student experience'.
5.10 To enable this new strategy the University has consulted on its Estate Masterplan. This document provides a guide to how the University could develop its estate over the long-term. As such it presents a number of options which will be considered by the University’s governing bodies in light
County Durham Plan Preferred Options 71 County Durham Plan Preferred Options
of the consultation. The University’s aspiration is to house 50-55% of students in College affiliated accommodation by 2027. This will be achieved by developing new build colleges on Durham University land and working in partnership with purpose-built student accommodation (PBSA) providers.
5.11 Although Durham University is one of the country’s leading universities and attracts the highest quality of students, the retention of graduates within the county is currently low. Working with the University provides a major opportunity and is a priority for improving the county's economy by providing adequate and appropriate space to facilitate investment related to the work and research of the University and the conditions in which graduates want and have the opportunity to stay within the county. Given the University's location within Durham City there may be particular opportunities related to the development of the Aykley Heads site as well as their continued contribution at NetPark in Sedgefield.
5.12 The Plan also includes policies against which any future proposals related to the University will be considered, in particular Policy 17 (Durham University Development, Purpose Built Student Accommodation and Houses in Multiple Occupation).
Visitor Economy Introduction
5.13 The visitor economy is an important and resilient part of the County Durham economy, worth over £738m a year and consistently sustains the equivalent of around 10,800 full time jobs(42). But there remains a great deal of untapped potential. A healthy tourism industry can help sustainable economic growth, and contribute to prosperous communities and attractive environments, making it a key element of the Altogether Wealthier theme of our Sustainable Communities Strategy and Regeneration Statement.
5.14 County Durham aims to offer a visitor experience that matches its outstanding natural landscapes and its internationally famous built heritage. The development priorities for the visitor economy are identified and assessed through the Durham Tourism Management Plan (DTMaP). This is produced by Visit County Durham, the official Destination Management Organisation for County Durham, which coordinates the development of the visitor economy and manages and markets the County as a destination. Visit County Durham offers support and guidance to potential tourism developers through the Investment Evaluation Process. This ensures that projects are desirable in terms of market need, viability, sustainability(43) and how they would impact on visitors, the economy, the tourism industry, the environment and residents. One of the key roles of the DTMaP process is to ensure that potential investment is based on robust evidence.
5.15 Tourism and leisure development, including visitor attractions, leisure facilities, visitor accommodation and green infrastructure will be protected, and where necessary, enhanced, promoted and expanded in partnership with key agencies and delivery partners. This will ensure their enhanced role as key economic drivers in stimulating and regenerating the local economy. The Plan aims to strengthen County Durham's role as a visitor/tourist destination, building on and adding to, the strength of existing attractions, townscapes and landscapes, encouraging the development of new visitor attractions and accommodation. Particularly capitalising on the assets of Durham City as a destination and increasing the contribution of Durham's rural areas to the overall value of the County visitor economy. The DTMaP builds on this objective through specific priorities identified in partnership with key public and private visitor economy stakeholders. To enable and encourage the development of the county's tourism industry the following policies deal specifically with visitor attractions and accommodation. It is acknowledged that the visitor economy is much broader in scope than these two elements (including events, retail, food tourism and the night-time economy for example), however these are covered by other mechanisms or policies within the Plan.
42 Figures from the 2014 STEAM Report: http://www.visitcountydurham.org/intelligence 43 The process will signpost applicants to the requirement for a sustainability statement as detailed in the Sustainable Design in the Built Environment Policy and an HRA Screening Opinion where appropriate.
72 County Durham Plan Preferred Options County Durham Plan Preferred Options
Policy 8 - Visitor Attractions
Policy 8
Visitor Attractions
The visitor sector is an important and resilient part of the county's economy. In order to raise the quality of the visitor experience, the provision of new visitor attractions or the expansion of existing attractions will be permitted provided:
a. It is located in sustainable and accessible locations or can be made so;
b. It is appropriate to the site's location in terms of scale, design, layout and materials;
c. It does not have an unacceptable adverse impact on the county's valuable natural, built or heritage assets and helps to enhance any affected asset;
d. It can demonstrate the viability of the new attraction or where appropriate helps support the viability of an existing attraction; and
e. It enhances and complements existing visitor attractions or priorities in the county and supports the development of a year-round visitor economy and/or extends visitor stays.
Where a countryside location is necessary the development should:
f. Meet identified visitor needs;
g. Support local employment and community services;
h. Ensure adequate infrastructure; and
i. Relate to an existing tourism asset that is based upon a site specific natural or heritage feature.
Large Scale Development
Comprehensive master planning and a robust business plan to articulate the potential impacts, proposed mitigation and economic, social and environmental benefits should accompany applications for large scale new or expanding visitor attractions.
5.16 There are approximately 70 regionally, nationally and internationally recognisable visitor attractions in the county which can be viewed at www.thisisdurham.com. The most visited are Durham Cathedral (more than 600,000 visitors and worshippers in 2011) and Beamish Museum (497,891 paying visitors in 2011/12). Other attractions with significant visitor numbers(44) include Hardwick
44 Approximately 20,000 or more visitors per year.
County Durham Plan Preferred Options 73 County Durham Plan Preferred Options
Park, Locomotion (National Railway Museum at Shildon), Hamsterley Forest, the World Heritage Visitor Centre, Durham County Cricket Club, Adventure Valley (Durham City), Bowes Museum, High Force, Raby Castle, Durham Botanic Gardens, Barnard Castle, Killhope Lead Mining Museum and Sedgefield Racecourse. In addition the county boasts a number of historic townscapes as well as local and national walking, cycling and riding routes which link beyond County Durham's borders. The county also hosts major events which attract large visitor numbers such as the regular Durham Lumiere Festival and the Durham Brass Festival. A major new attraction at Eleven Arches, Bishop Auckland has recently added to the county's tourism offer. Known as Kynren, this open air amphitheatre explores 2000 years of history and links to the wider art and heritage based tourism opportunities being realised at Auckland Castle and Bishop Auckland Market Place.
5.17 The county's strong railway heritage includes the Bishop Auckland to Darlington railway, which is recognised as an asset running through the core economic area of south Durham; connecting the main towns of Bishop Auckland, Shildon and Newton Aycliffe and providing a key gateway to the Durham Dales. Together with the Weardale Railway it forms a strategic railway tourism corridor linking the Darlington Railway Museum, Locomotion at Shildon and Weardale Heritage Railway. These heritage assets are further supported through Policy 48 (Stockton and Darlington Railway).
5.18 The rural and tranquil nature of Durham's countryside is an important asset for residents and visitors. Therefore development within the countryside needs to be compatible with its location in order to protect this areas unique character. It is also important to ensure that existing heritage and environmental assets are both protected and supported in appropriate ways to help them flourish.
5.19 New visitor attractions will be directed to accessible and sustainable locations in the first instance in order to address the need to develop the visitor offer and encourage visitors to stay longer. Where development is not in accessible locations it will be focused on the conversion of existing buildings and developments that contribute to rural diversification, enjoyment of the countryside and access to heritage. These development applications will need to demonstrate suitable accessibility.
5.20 Planning for tourism should make the most of our assets, enriching them rather than harming the very character, quality and beauty that makes them attractive to residents and visitors. This can be achieved by ensuring development is appropriately located and levels of visitor activity are not likely to significantly affect protected sites and species, particularly those of National and European importance.
74 County Durham Plan Preferred Options County Durham Plan Preferred Options
How will the Policy be monitored?
Indicator:
1. Number of approved and completed visitor attractions
Target:
1. No Target
Question 14
This is our preferred policy. Do you have any comments?
Policy 9 - Visitor Accommodation
Policy 9
Visitor Accommodation
1. Subject to parts 2 and 3 of this policy, all new visitor accommodation or extensions to existing visitor accommodation, will be supported where:
a. It is appropriate to the scale and character of the area;
b. It does not have an unacceptable adverse impact on the county's valuable natural, built or heritage assets; and
c. It is not used for permanent residential occupation.
2. Proposals for visitor accommodation that are in the countryside will be supported where they meet criteria (a) to (c) and where:
d. A countryside location is necessary to meet identified visitor needs; or
e. It is an extension to existing visitor accommodation and helps to support future business viability or is a conversion of an existing building; and
f. The site is in an appropriate location in terms of access to existing services(45).
45 Such as shops, meeting places, sports venues, cultural buildings, public houses and places of worship.
County Durham Plan Preferred Options 75 County Durham Plan Preferred Options
3. Proposals for new, and extensions to existing, sites for chalets, camping(46) and caravaning (both static and touring) along with associated storage and infrastructure will be supported where they meet criteria (a) to (f) and where:
g. They provide a specific Flood Risk Warning and Evacuation Plan in accordance with Table 2 in the National Planning Policy Framework (NPPF) Technical Guidance; and
h. They are not unduly prominent in the landscape from either long or short range views by ensuring:
(i) Adequate year-round screening through existing topography, vegetation or other features which are compatible with the landscape. Where new or additional screening is required this must be suitably established before development can take place;
(ii) The layout would not adversely affect the character of the area; and
(iii) The materials and colour of chalets or static caravans, site services and infrastructure are designed to blend with the surroundings of the site and limited in scale to the needs of the site occupants only.
5.21 In County Durham there are approximately 500 visitor accommodation businesses with over 14,000 bed spaces (this includes seasonal university accommodation). A detailed audit of existing accommodation and gaps in provision(47) has been completed and this will help inform the determination of future planning applications, for example if there is an over or under provision of certain types of holiday accommodation in a given area. Liaison with Visit County Durham is recommended to establish demand.
5.22 Durham City's dual role as a visitor and business centre assists in the provision of visitor accommodation and ensures a high level of occupancy throughout the year. However the city currently lacks sufficient quality business and conference facilities which would help build upon this high value non seasonal market. A detailed audit of facilities, capacity, market demand and potential has been completed and this helps to inform the determination of future planning applications.(48)
5.23 There is an expectation from the council that applicants will provide evidence of how development proposals will help to support future business viability, the evidence will need to be proportionate to the scale of development.
5.24 In relation to tourism accommodation in built up areas, Annex 2 of the National Planning Policy Framework (NPPF) highlights that hotels fall into the category of main town centre uses, which would therefore require a sequential test to be carried out if the application was outside of a defined town centre boundary. However the Planning Practice Guidance (PPG) acknowledges that the use of the sequential test should recognize that certain main town centre uses have particular market and locational requirements which mean that they may only be accommodated in specific locations. The PPG highlights that robust justification must be provided where this is the case, and land ownership does not provide such a justification.
46 Chalets and camping can include basic ridge/dome-tents, yurts, tipis/teepees, geodesic domes, safari-style tents/canvas lodges, bell tents, wooden shepherds huts, wooden wigwams/cocoons/snugs, cabins, eco-pods or similar structure. 47 Visit County Durham - County Durham Visitor Accommodation Futures Study and Visitor Accommodation Development Strategy. 48 The DTMaP and associated reports can be viewed at: http://www.tourismnortheast.co.uk/visit-county-durham/strategies-and-plans
76 County Durham Plan Preferred Options County Durham Plan Preferred Options
5.25 Tourism accommodation in rural areas, providing it is in suitable locations, can have a positive impact on the local economy, including some social benefits. Appropriate conditions restricting this accommodation to holiday use will be employed to avoid the provision of owner occupied second homes which do not positively contribute to the production of sustainable communities and are economically less significant. The condition will ensure that whilst accommodation can operate all year, it will be available for commercial holiday lets for at least 140 days a year and that no let must exceed 31 days.
5.26 The occupation of static caravans for permanent residential use is not considered appropriate unless they are located within an established static caravan park specifically developed for that purpose. Storage sites for touring caravans help remove caravans from residential areas where they are often unsightly. However sites need to be secure, well screened throughout the year and preferably located close to settlements.
How will it be monitored?
Indicator:
1. Net additional bed spaces
Target:
1. No net loss
Question 15
This is our preferred policy. Do you have any comments?
Ensuring the vitality of town centres
5.27 The National Planning Policy Framework (NPPF) maintains the 'town centres first' approach to the location of main town centre uses, requiring planning policies to be drawn up to positively promote competitive town centres and manage their growth.
5.28 Nationally, town centres face increasing economic challenges including a change in consumer behaviour and the rise in e-commerce, mobile technology and Internet shopping. The significant growth in this sector has inevitably impacted on the number and range of shops, with many national retailers withdrawing from town centres including those in County Durham. We have seen similar changes in respect of food retail with the development of large format stores now either shelved or closing. We have however at the same time seen growth of smaller and more local convenience and discount stores coming forward as a direct response to the economic climate that currently exists. The ease of travel and the increasing attraction out of town shopping across the region has further impacted on how our town centres are used.
County Durham Plan Preferred Options 77 County Durham Plan Preferred Options
5.29 Although town centres are now not always the main focus for people's shopping, they are still key drivers to the economy. Therefore it is important that we ensure our centres remain viable going forward by understanding national trends and ensuring that they reflect the needs and opportunities of the communities that they serve. It is essential that we set out this strategy in the context of national policy.
Policy 10 - Retail Hierarchy and Town Centre Development
Policy 10
Retail Hierarchy and Town Centre Development
Retail Hierarchy
The council will protect and enhance the following hierarchy of Sub Regional, Large Town, Small Town, District and Local retail centres in the county.
Sub Regional Centres - Bishop Auckland, Durham City
Large Town Centres – Barnard Castle, Chester-le-Street, Consett, Crook, Newton Aycliffe, Peterlee, Seaham, Spennymoor, Stanley
Small Town Centres - Ferryhill, Shildon
District Centres - Arnison Centre Durham City, Sherburn Road Durham City
Local Centres - Annfield Plain, Bearpark, Blackhall, Bowburn, Brandon, Burnopfield, Chilton, Coundon, Coxhoe, Dipton, Easington Colliery, Esh Winning, Fencehouses, Fishburn, Framwellgate Moor, Great Lumley, Horden, Lanchester, Langley Moor, Langley Park, Leadgate, Middleton-in-Teesdale, Murton, Pelton, Sacriston, Sedgefield, Sherburn Village, Shotley Bridge, Shotton, South Moor, Stanhope, Tow Law, Trimdon Grange, Trimdon Village, Ushaw Moor, West Auckland, West Cornforth, Wheatley Hill, Willington, Wingate, Wolsingham
The Plan will look to support new town centre development across all of the county's centres that will improve choice and bring about regeneration and environmental improvements where a proposal will:
a. Be consistent in scale with the size and function of the centre;
b. Safeguard the retail character and function of existing centres and not detract from their vitality and viability; and
c. Be convenient and accessible in order to meet the day to day needs of residents and contribute to social inclusion and sustainable development.
In all other locations outside of those identified in the retail hierarchy the loss of essential shops and services will be resisted.
78 County Durham Plan Preferred Options County Durham Plan Preferred Options
Town Centre Boundaries
Proposals for town centre uses, as defined by National Planning Policy Framework (NPPF)(49) not located within a defined centre, as shown on the policies map, will be required to provide a robust sequential assessment.
Proposals for retail, in excess of 1,500 sqm (gross) convenience floorspace or 1,000 sqm (gross) comparison floorspace, not located within a defined centre and that could impact on a Sub Regional, Large Town or District Centre will be required to provide a robust impact assessment in accordance with the guidance within the NPPF and the Planning Practice Guidance (PPG).
Proposals for retail, as defined by NPPF, in excess of 400 sqm (gross) convenience or comparison floorspace, not located within a defined centre and that could impact on Small Town or Local Centres will be required to provide a robust impact assessment in accordance with the guidance within the NPPF and the Planning Practice Guidance (PPG).
For leisure development the national default threshold of 2,500 sqm is applicable.
Where an application fails the sequential test or would have a significant adverse impact on investment or the vitality and viability of a town centre, it will be refused.
Primary Frontages
Within the primary retail frontage, as shown on the policies map, A1 (retail) uses will be supported as the predominant use. A2 (financial and professional services), A3 (restaurants and cafés), A4 (drinking establishments) and (D2 Assembly & Leisure) and A5 (hot foot takeaways) use will only be permitted where they preserve the vitality and viability of the primary frontage. A5 uses will also be considered in the context of this and also the need to consider the requirements of Policy 32 (Hot Food Takeaways A5 uses).
Evening Economy
Proposals that would positively contribute to the evening economy will be supported provided they contribute to the vitality and viability of town centres and accord with this and other relevant policies in the Plan.
Retail Hierarchy
5.30 Retailing and the county’s town centres are key drivers of the economy. Setting out a strategic framework for the retail centres is an important factor in improving the overall performance of County Durham's economy.
5.31 To determine the retail needs within the county, it is important to understand the role of each town and local centre. National guidance advocates the need to develop a hierarchy of centres with each performing an appropriate role to meet the needs of its catchment area. The County Durham Retail and Town Centre Uses Study(50) provide recommendations for a retail hierarchy in County Durham. The hierarchy is based on a quantitative and qualitative assessment of each centre, its wider function in terms of overall shopping and service offer, and the number of national multiples
49 Main town centre uses: Retail development (including warehouse clubs and factory outlet centres); leisure, entertainment facilities the more and recreation uses (including cinemas, restaurants, drive-through restaurants, bars and pubs, night clubs, casinos, health and fitness centres, indoor bowling centres, and bingo halls. 50 https://durhamcc.objective.co.uk/portal/planning/cdpev/
County Durham Plan Preferred Options 79 County Durham Plan Preferred Options
represented. It should be noted that whilst Retail and Town Centre Uses Study did not identify a need to specifically allocate sites for new retail development within our town centres, the Plan will support new retail and town proposals that will improve choice and bring regeneration benefits.
Sub Regional Centres
5.32 Analysis carried out within the Town Centres Uses Study found that Durham City and Bishop Auckland function as Sub Regional Centres. Both centres have significant levels of floorspace within their defined centre boundaries and have several major national multiple retailers represented. They are the largest centres in the county and their influence extends over a wide area. Durham City serves a central Durham catchment including Chester-le-Street and Peterlee, whilst Bishop Auckland serves Spennymoor, Crook and much of the rural west.
5.33 Within Durham City, and the city centre there has seen significant recent and continued investment. Redevelopment of the Gates Shopping Centre in North Road is well underway with completion due later this year. This will include a multiplex cinema, associated leisure uses and the opening up of the riverside walkways and improvement of the retail offer. This will create a draw for this area of the city centre. Alongside this is the 60,000 sqm development of Milburngate House. The site will be mixed use and include residential, leisure and commercial uses regenerating this riverbank location.
5.34 A masterplan for Bishop Auckland town centre has been developed that seeks to build on the significant investment at Auckland Castle through the Auckland Project and the Eleven Arches. A range of projects are being developed across the town centre investing in the culture, heritage and economy of the town. The Plan will support proposals that will deliver the aims of the masterplan, increase footfall within the town centre and improve its vitality and viability.
Large Town Centres
5.35 The defined Large Town Centres perform a supporting role to the Sub Regional Centres providing a lesser, more limited offer and serving a more localised catchment. Whilst these towns have major foodstores and a full range of local services and employment uses, the non-food retail offer in each of these centres is relatively limited with few national multiple comparison retailers present.
5.36 Within Barnard Castle, the Retail and Town Centre Study has identified food spend leakage out of the town to other centres within and also outside of the county. In terms of main food retail destinations, the town only has a single small Morrison's store resulting in a lack of choice for local residents. The Plan will therefore support proposals that will deliver new food retail provision within Barnard Castle that comply with the sequential and retail impact tests.
5.37 A masterplan is being developed in Chester-le-Street that will focus on utilising vacant and underused land within the town centre as well as improving the quality of the local environment. This is with the aim of improving the vibrancy of the town centre and the quality of the offer. A key element of the masterplan is the opening up of the Cong Burn that currently runs underneath the town’s market place. This will reduce the risk of flooding in the town as well as seeing the watercourse transformed into a public realm feature. The Plan will support proposals that deliver the aims of the masterplan.
5.38 The council have focused on a range of improvements for Consett town centre in order to improve the visual quality of the shopping environment. This has delivered public realm improvements including new paving, lighting, street furniture and planting areas with the town centre. Over the next 18 months, the council will be developing a masterplan with the aim of further revitalising the town centre.
80 County Durham Plan Preferred Options County Durham Plan Preferred Options
5.39 Crook town centre has seen recent development with the former Co-Op store on New Road demolished and replaced by a new Lidl store. This alongside the approved Aldi store on Queen Street will improve choice in the town and improve the levels of expenditure retention.
5.40 Newton Aycliffe has recently seen the adoption of a neighbourhood plan where the importance of retail and the town centre was highlighted. This specifically related to improving the retail offer in the town as well as the evening economy. A proposed development of four retail units has recently been approved on the former Cubby site that will deliver wider choice in the town. The Plan will support further proposals that improve the offer within the town centre.
5.41 Peterlee has seen approvals for two large foodstore schemes, at the former Easington College site and the partial redevelopment of the Castle Dene Shopping Centre. Neither of these schemes have come forward since approval in 2012. Whilst the Retail and Town Centre Study does not identify any overriding retail need, there are significant regeneration benefits to the redevelopment of the former Easington College site for a retail based scheme. The Plan will therefore support retail development on this site which broadly accords with the original permission.
5.42 Seaham town centre has benefited from recent investment in North Terrace, however there are a number of sites within the town centre that provide development opportunities that can deliver improvements to the town centre. The Plan will support proposals that will bring about further range and choice in the town's retail provision.
5.43 Festival Walk lies in the heart of Spennymoor town centre. It currently suffers from high vacancy rates including the large former KwikSave unit. It has a detrimental impact on the appearance of the town centre and has long been recognised as an area in need of regeneration. The Plan will support redevelopment of this area of the town that has the potential to improve the retail offer while also bringing considerable environmental and regeneration benefits.
5.44 Work on two multi-million developments as part of the ongoing regeneration of Stanley town centre are now underway. The former KwikSave building on Clifford Road in Stanley is being redeveloped for a new Home Bargains store and, the old bus station and former Co-op building, which were demolished several years ago, are being cleared for a new Aldi store. A new £1.4 million, 23-bed hotel in Stanfield House, the former council care home, also opened recently creating 20 jobs. The Plan will continue to support further schemes which improve the range and choice in the town.
Small Town Centres
5.45 The defined Small Towns predominantly perform a local top up role with the majority of local residents looking towards mainstream food provision in larger centres to meet their main convenience shopping needs. In addition the towns have a limited comparison retail offer and basic service and leisure provision. They do however perform an important role and will be protected within the retail hierarchy.
5.46 Ferryhill town centre's important local role is reflected in the limited number of vacant units evident within it. The most recent survey undertaken in Autumn 2017 identified only 5 vacant units. In addition stores such as the Co-op and B&M Bargains as well as a number of independent shops provide a level of provision befitting a town the size of Ferryhill. The Plan will support further proposals that will improve retail choice within the town centre.
5.47 Shildon town centre's proximity to Bishop Auckland means that it performs a complimentary function as a retail destination. With further investment at Locomotion, this can act as a catalyst for increased visitors and increased spend within Shildon and its town centre which in turn could lead to further investment.
County Durham Plan Preferred Options 81 County Durham Plan Preferred Options
District Centres
5.48 Both of the defined District Centres have large mainstream convenience foodstore anchors and also a higher order non-food retail offer which reflects the origins of both centres as out of centre retail park developments. The District Centres do however lack the local service function (banks, professional services etc.) of traditional centres. It is particularly important that the future development of these centres does not undermine the role of other higher order centres and particularly Durham city centre.
Local Centres
5.49 The Local Centres are found within a large number of villages across the county. These support a number of local shops and services that meet local residents’ daily shopping needs.
Essential Shops and Facilities
5.50 In some of our smaller settlements, where there are not sufficient shops for a local centre to be defined, a local shop/convenience store or community facility is of even greater importance to the local population. It is important that the unnecessary losses of shops and community facilities within the county's smaller settlements are avoided. In assessing applications that would potentially see the loss of such facilities, particular consideration will be given to the accessibility or availability of equivalent facilities near by and the role that facility plays within the settlement. The views of local people and relevant Parish Council will be of particular importance in assessing such applications.
Protection of Town Centres
5.51 Town and local centres, are the heart of their communities. Government policy continues to support town centres by promoting vitality and viability within them. The council monitor the performance of the county's towns annually and have defined town centre boundaries across the county based on the changing dynamics of these centres(51). The boundaries for these centres are defined on the policies map and define the most suitable locations for retail and other town uses such as leisure or cultural facilities.
5.52 Applicants proposing retail and town centre uses on edge of centre or out of centre sites will be required to carry out a sequential assessment. In addition schemes that are proposing food retail developments outside of a defined centre with a floorspace greater than 1,500 sqm (gross), which could impact on a Sub Regional, Large Town and/or District Centres, should be accompanied by a retail impact assessment. This threshold will be adjusted to 1000sqm (gross) where the proposal is for comparison retailing.
5.53 A specific impact threshold has also been defined for proposals that would impact on a Small Town and Local Centres. In this instance where proposals for comparison or convenience retail are in excess of 400sqm (gross), an impact assessment will be required.
5.54 For leisure development the national default threshold of 2,500sqm is applicable. In producing sequential and impact assessments, applicants will be required to follow guidance within the National Planning Policy Framework (NPPF) and the Planning Practice Guidance (PPG).
Primary Frontages
5.55 The Plan defines Primary Retail Frontages for all of the county's Sub Regional, Large and Small Town centres. Primary frontages are the principal retail locations, have the highest proportion of A1 retail uses within a centre and form the primary shopping areas within these town centres. Given
51 link to TC surveys
82 County Durham Plan Preferred Options County Durham Plan Preferred Options
the more flexible approach of national guidance and regulations it is considered that there is insufficient justification to define or control uses within secondary retail frontages and they have therefore not been defined.
5.56 Within defined primary frontages we aim to maintain a predominantly retail offer but with an appropriate provision of non A1 facilities to enhance the town centre experience by offering a reasonable choice of services to shoppers and visitors. Proposals will be assessed against the existing provision and mix of commercial and retail uses. Harm to the retail character will be determined by assessing a proposal's contribution to the vitality and viability of a centre. Consideration will need to be given to whether a proposal would result in 'dead frontage' i.e. not require passing trade, and whether it would result in an over concentration of non-retail uses within the defined primary frontage. Non-retail uses should be dispersed around a town centre contributing to the movement and flow of pedestrians. Support will be given to pop up shops given the positive contribution they can make to the vitality and vibrancy of town centres.
5.57 In some instances town centres may provide suitable locations for residential uses, contributing to the overall housing supply and also to a centre's vitality and viability, whilst also increasing footfall. Residential uses will be encouraged within Sub Regional, Large and Small town centres, outside of the Primary Retail Frontage, where it complies with relevant policies in the Plan.
Evening Economy
5.58 The Retail and Town Centre Uses Study identifies deficiencies in the evening and night time economy in many of the county's town centres. It will be important to support appropriate proposals that can improve the evening economy in these towns.
5.59 Proposals that relate to the development of the evening and night time economy (e.g. pubs, clubs, restaurants, shops and night-time entertainment) will be supported as valuable additions to the vitality and viability of Sub Regional and Large Town Centres, provided that the operation of such activities can be controlled to address amenity impacts (in accordance with Policy 33 (Amenity and Pollution)). Such developments will be resisted where they have a detrimental impact on other uses or areas or otherwise undermine town centres.
How will the Policy be monitored?
Indicator:
1. Vacancy rates in retail centres
2. Approved and completed retail floor space outside of town centres on sites that are over 1,500m2 for convenience and over 1,000m2 for comparison
Target:
1. Vacancy rates below national rate
2. None delivered which failed the required impact threshold
County Durham Plan Preferred Options 83 County Durham Plan Preferred Options
Question 16
This is our preferred policy. Do you have any comments?
Supporting a prosperous rural economy
5.60 Ninety per cent of the county's population lives east of the A68 in forty percent of the county area yet rural communities do not only exist within the west of the county. In fact County Durham's rural areas vary widely in character from remote and sparsely populated areas in the Pennine Dales, to the larger villages located within the former coalfield communities in the centre and east. These areas do not have good access to more urban areas and the services and facilities in those areas including housing and employment. The Department for Environment, Food and Rural Affairs define our rural areas by lower super output area(52) as shown on the map below.
Rural Urban Classification Map produced by DEFRA
5.61 It is important that rural settlements are not unduly constrained and remain sustainable. Our rural communities require proportional growth so that their population have a balance of ages and are able to thrive and grow while also respecting the character of the countryside. Rural communities can have quality environments to live in and visit but can also have an important role to play in the
52 https://www.gov.uk/government/uploads/system/uploads/attachment_data/file/86364/NE_GOR_LSOA.jpg
84 County Durham Plan Preferred Options County Durham Plan Preferred Options
rural economy as workplace locations. Therefore the council supports development that meets the needs of the local community such as affordable housing and economic diversification, provided the countryside is protected from wider development pressures and widespread new building.
5.62 Rural areas can experience a far greater reliance on the car than urban areas which can cause problems in accessing work. Similarly young people need the means to be able to access the further education system including maintaining public transport links.
5.63 One of the key issues that has constrained the economy of rural areas is the lack of a reliable broadband connection. As this is improving with the roll out of superfast broadband, we need to be in a position to capitalise on this opportunity but in a way which preserves the quality and character of what makes these areas special. This will stimulate a prosperous rural economy by opening up new economic sectors as well as improving the traditional sectors such as tourism, agriculture and forestry. It should also improve the quality of lives of residents by providing greater access to key services. We need to ensure that the Plan supports and enables rural growth in order to provide sustainable jobs and be proactive and flexible in attracting investment to the area.
5.64 As described in the Introduction to the Plan, to ensure that rural areas are not disadvantaged, policies within the Plan have been subjected to a rural proofing exercise, both during and after the policy creation stage in line with Defra rural proofing good practice guidance. Rural proofing is not about providing special treatment for rural areas, but rather reflecting the reality that some policies will not necessarily work as effectively in rural areas due to their dispersed population, settlements and economic markets. Rural proofing aims to ensure that the needs of, and issues affecting, those living and working in rural areas are considered as new planning policies are developed.
Policy 11 - Development in the Countryside
Policy 11
Development in the Countryside
Development in the countryside will not be permitted unless allowed for by specific Development Plan policies(53) or where the proposal relates to one or more of the following exceptions:
Economic Development
Development necessary to support:
a. An existing agricultural or other existing rural land based enterprise or associated farm diversification scheme, including the provision of new or the extension of existing building(s), structures or hard standings required for the functioning of the enterprise;
b. The expansion of an existing business falling beyond the scope of a rural land based enterprise, where it can be clearly demonstrated that it is, or has the prospect of being, financially sound and will remain so;
53 Policies within an adopted Neighbourhood Plan or the County Durham Plan relating to; Housing Allocations; Employment Land Allocations; Visitor Attractions; Equestrian Development; Rural Exceptions; Gypsies and Travellers; Green Infrastructure; Rural Workers Dwellings; Minerals and Waste Allocations; and Transport Routes (roads, cycle-ways and rail).
County Durham Plan Preferred Options 85 County Durham Plan Preferred Options
c. The establishment of a new agricultural or other rural land based enterprise which clearly demonstrates an essential and functional need for that specific location and where it can be clearly demonstrated that it has the prospect of being financially sound and will remain so; or
d. The undertaking of non-commercial agricultural activity (i.e. hobby farming) which is located within or directly adjoining the applicant’s existing residential curtilage.
In all instances the resulting development must be of a design, construction and scale which is suitable for and commensurate to the intended use. In respect to (a), (b) and (c) any resulting building(s), other structure(s) and hard standing(s) must be well related to the associated farmstead or business premises unless a clear need to ensure the effective functioning of the business for an alternative location can be demonstrated by the applicant.
Infrastructure Development
Development necessary to support:
e. Essential infrastructure where it can be demonstrated that all other reasonable options have been fully considered;
f. The provision of new, or the enhancement of, existing community facilities; or
g. Development of a new, or the enhancement of, an existing countryside based recreation or leisure activity which will improve access to the countryside for all in terms of walking, cycling, horse riding and sailing without giving rise to adverse environmental impacts.
Development of Existing Buildings
Development necessary to support:
h. The change of use of an existing building or structure which:
1. Already makes a positive contribution to the character and appearance of the area and is capable of conversion without complete or substantial rebuilding, disproportionate extension or unsympathetic alterations;
2. Results in an enhancement of the building’s immediate setting;
3. Does not result in the unjustified loss of a community service or facility; and
4. In the case of a heritage asset represents the optimal viable use of that asset.
i. Intensification of use through subdivision;
j. Replacement of an existing dwelling in the same location with one of a comparable footprint and mass; or
k. Extension of an existing dwelling or other householder development within the existing curtilage which is incidental to the enjoyment of the dwelling, including proposals to facilitate home working.
86 County Durham Plan Preferred Options County Durham Plan Preferred Options
General Principles for all Development in the Countryside
New development in the countryside must accord with all other relevant development plan policies and by virtue of siting, scale and design must not:
l. Give rise to unacceptable harm to the heritage, biodiversity, geodiversity, intrinsic character, beauty or tranquillity of the countryside either individually or cumulatively;
m. Result in the merging or coalescence of neighbouring settlements;
n. Contribute to ribbon development;
o. Impact adversely upon the setting, townscape qualities, including important vistas, or form of a settlement;
p. Be solely reliant on, or in the case of an existing use, significantly intensify accessibility by unsustainable modes of transport;
q. Be prejudicial to highway safety; and
r. Impact adversely upon residential or general amenity.
5.65 For the purposes of this policy, land which is not within an existing built up area, as defined by Policy 7 (Development on Unallocated Sites In the Built Up Area) will be regarded as 'countryside'. As a general principle, the Plan seeks to direct new development to sites within the built up area, or sites specifically allocated for development. However, it is recognised that in the interests of the rural economy and the sustainability of its communities, they too need to be supported by appropriate new development. Therefore the circumstances where development relating to both existing and new uses and buildings will be acceptable in the countryside are set out in this policy alongside other relevant policies in the Plan.
5.66 Modern agricultural buildings in the form of portal framed or other similarly constructed structures are cheap to construct, flexible for a wide range of uses and are therefore attractive to small scale hobby farmers and non-agricultural uses. To avoid the proliferation of these buildings in the countryside, all proposals for an 'agricultural' building in the countryside will be assessed to determine whether the proposed building is genuinely required for agricultural purposes and is of a commensurate scale for the intended purpose. Small scale non-commercial activity may also be acceptable where this is closely related to the applicant's existing residence.
5.67 As well as providing leisure and recreational opportunities, the countryside is a constantly changing workplace. It is necessary to balance and integrate the requirement to protect the countryside with the need to sustain and encourage the vitality and viability of the rural economy including through agriculture and tourism. The modernisation and diversification of existing activities will be supported where this can be achieved in a sustainable manner and will enable their retention as a viable use. New, and improvements to existing, infrastructure will also be supported especially where this will bring about wider economic and social benefits.
5.68 There are a varied range of buildings in the countryside which are under threat of closure, are disused for their original purpose or are redundant. The majority are likely to be agricultural buildings but there may also be community facilities including places of worship, mills, schools, or public houses, for which an alternative use is being sought. Many of these buildings make a positive contribution to the character and appearance of the countryside and some are heritage assets in their own right and
County Durham Plan Preferred Options 87 County Durham Plan Preferred Options
may be 'at risk'. The sympathetic conversion of these buildings, for example to employment or community use, visitor accommodation or housing can safeguard their future. The change of use of any such building must be clearly justified on a case by case basis according to their individual circumstances. Any such proposals requiring alterations to enable the conversion must be accompanied by a structural survey to demonstrate that this can be done without significant rebuilding or alteration. Any proposed extension must be proportionate, respect the scale, form and character of the building as well as being appropriate to its wider setting. The policy also sets out the circumstances whereby householder development for purposes incidental to the enjoyment of the dwelling house, the replacement of an existing dwelling with another or the intensification of use through sub division will be permitted.
How will the Policy be monitored?
Indicator:
1. Appeals upheld contrary to this policy
2. Number of new agricultural or other rural land based enterprise ventures (approved and completed)
3. Number of community facilities within the countryside being lost to alternative non community uses (approved)
Target:
1. None upheld at appeal
2. No target
3. Zero
Question 17
This is our preferred policy. Do you have any comments?
88 County Durham Plan Preferred Options County Durham Plan Preferred Options
Policy 12 - Rural Housing and Employment Exception Sites
Policy 12
Rural Housing and Employment Exception Sites
New housing and employment related development that is contrary to Policy 11 (Development in the Countryside), but is proposed in rural parts of the county shown on the Defra's Rural Urban Classification map, will be permitted where the following criteria are met:
Where housing is proposed it must be shown that:
a. The development is immediately adjacent to an existing settlement;
b. There is an identified local need for affordable housing sufficient to justify the scale and nature of the development, with accompanying evidence showing this could not reasonably be satisfied in other settlements in the vicinity;
c. Any market housing is only included where it can be robustly demonstrated that this is essential to support the viable delivery of affordable housing. Only the minimum necessary should be included; and
d. The affordable housing is made available to the local community identified as being in need, with priority given to occupation by households with a local connection.
Where employment related development is proposed it must be shown that:
e. It is of a scale and type that is appropriate to its location; and
f. It could not be more appropriately situated on an existing or allocated industrial estate, an existing suitable building or other land within other settlements in the vicinity.
All proposals must be in scale and keeping with the form and character of any nearby settlements and the local landscape.
5.69 As shown on Defra's Rural Urban Classification map in the introduction to this section, County Durham has substantial rural areas, which are characterised by villages, hamlets and isolated dwellings, particularly in the west. There may be circumstances where affordable housing and employment related development is needed in these areas but can only be delivered by permitting development in the rural areas defined on this map, either adjacent or close to existing settlements which would normally be contrary to Policy 11 (Development in the Countryside). Exceptions to Green Belt policy can include the provision of limited affordable housing for local community needs as set out in Policy 11. Such sites are known as exception sites.
County Durham Plan Preferred Options 89 County Durham Plan Preferred Options
Housing
5.70 Affordable housing which is being proposed should meet local needs, reflect demand for particular sizes, types and tenures of housing and conform with the definition in the National Planning Policy Framework (NPPF). It must be justified on the basis of a pressing local need for affordable housing which is demonstrated by appropriate evidence, including a local needs study relating to the area concerned. Those regarded as being in local need are:
People who need to be housed but are unable to compete in either the open market for house purchase or are unable to afford private sector rents; and
People who are local to a village or a group of villages by birth, previous or current residence, employment or by virtue of having a close family member living in the area.
5.71 It is generally expected that any scheme proposed should consist entirely of affordable housing. In some circumstances, an element of market housing may be acceptable, provided that it is robustly shown to be necessary to achieve viability across the whole scheme.
Employment
5.72 The County Durham Employment Land Review (ELR) suggests that there is only very modest demand for employment land in areas away from the county's key economic market areas and our larger towns. Employment land allocations in the most rural parts of the county are therefore limited. Also in many cases existing plots on industrial estates do not meet the needs of modern rural based businesses. However we wish to support economic growth and the expansion of local businesses that are appropriate to the unique circumstances within rural areas. Therefore in some specific circumstances it may be appropriate to allow employment uses that would otherwise be contrary to Policy 11 (Development in the Countryside). Any proposal would need to demonstrate why it could not reasonably be situated on an existing or allocated industrial estate or an existing suitable building or other available land in a nearby settlement. Any proposal should reflect the character, appearance and landscape setting and should be sympathetic in scale to any nearby settlement.
5.73 It should be noted that this policy does not relate to the conversion of rural buildings for residential or employment use, or rural diversification proposals. These are included in Policy 11 (Development in the Countryside) where uses and developments which enhance the rural economy are supported.
5.74 Any exception site, whether proposed for residential or employment, must still comply with other relevant policies in the Plan and also the provisions of the Habitats Regulations, which prevents adverse impacts on European protected sites such as Natura 2000 sites and RAMSARS. Policies relating to design, amenity, visual and landscape impact are likely to be particularly relevant.
90 County Durham Plan Preferred Options County Durham Plan Preferred Options
How will the Policy be monitored?
Indicator:
1. Number of housing units approved and completed on Exception Sites
2. Amount of employment floorspace approved and completed on Exception Sites
3. Number of new businesses created on Exception Sites
Target:
1. No Target
2. No Target
3. No Target
Question 18
This is our preferred policy. Do you have any comments?
Policy 13 - Permanent Rural Workers’ Dwellings
Policy 13
Permanent Rural Workers’ Dwellings
Proposals for new permanent agricultural, forestry and other rural workers’ dwellings outside the built up area will be permitted provided it can be demonstrated that:
a. The nature and demands of the work involved means that there is an essential existing functional need for a permanent full time worker to live at, or very close to, the site of their work in order for the enterprise to function effectively;
b. The rural business activity has been established for at least three years, is currently financially sound as verified by a qualified accountant, and has a clear prospect of remaining so;
c. The proposed dwelling is not harmful to the rural landscape and character of the area and is physically well related to the activities required;
County Durham Plan Preferred Options 91 County Durham Plan Preferred Options
d. The scale of the dwelling is commensurate with the established functional requirement of the enterprise; and
e. The functional need could not be fulfilled by another existing dwelling on the unit, or any other existing accommodation in the area which is suitable and available for occupation by the workers concerned.
Planning permission will be granted subject to a planning condition protecting its continued occupation by agricultural, forestry and other rural workers with an essential housing need to live permanently at or near their place of work.
Permitted Development Rights will be removed in order to ensure that a dwelling is not subsequently extended to a size which exceeds its functional requirement and continues to be affordable for a rural worker.
If the enterprise has not been established for three years, temporary accommodation will only be permitted for a maximum of three years where criteria a) and c) are satisfied and there is evidence from a suitably qualified person that the enterprise is planned on a sound financial basis.
Removal of Occupancy Conditions
Removal of a rural workers occupancy condition will only be permitted if it can be demonstrated that:
f. There is no longer a current or potential future need for the dwelling in relation to a rural enterprise; and
g. The dwelling has been suitably marketed for sale and/or rent for at least twelve months at a price that reflects the occupancy condition and no reasonable offer has been refused.
5.75 The National Planning Policy framework (NPPF) makes it clear that isolated new houses in the countryside require special justification for planning permission to be granted. One of the few circumstances in which isolated residential development may be justified is when there is an essential need for agricultural, forestry and other full-time rural workers to live permanently at, or in the immediate vicinity of, their place of work.
5.76 Whether the need is essential in any particular case will require a demonstration that there is a functional requirement for a full time worker to be available at all times on the site for the enterprise to function properly; that the enterprise is financially sound so that this functional requirement is likely to continue well into the future; and that the need for a dwelling could not be met by existing buildings on the site or existing housing in the area. Cases will be judged on the needs of the enterprise and not the personal preferences of the specific individuals.
5.77 Many people work in rural areas in locations such as offices, schools, farm shops, workshops, garages and garden centres, or carry out their business in the rural area, but being employed in a rural location is not sufficient to qualify as a rural worker with an essential housing need to live permanently at or near their place of work.
92 County Durham Plan Preferred Options County Durham Plan Preferred Options
How will the Policy be monitored?
Indicator:
1. Number of applications for rural workers dwellings approved
Target:
1. 100%
Question 19
This is our preferred policy. Do you have any comments?
Policy 14 - Equestrian Development
Policy 14
Equestrian Development
Equestrian development will be considered an appropriate countryside use and will be permitted where the following criteria are met:
a. Stables are of an appropriate size, design and construction for their intended use and the number of stables reflect the amount of grazing land available;
b. The proposal involves the appropriate conversion of existing buildings or, where proposals involve new permanent buildings, these are located as part of, or close to, an existing famstead or other building grouping;
c. The proposal would not, by virtue of their siting, design, scale, materials or layout, lighting or through the inappropriate intensification of existing bridleways, routes and land, unacceptably affect the character, heritage or nature conservation value or the locality, either individually or cumulatively with other development;
d. The proposals provide appropriate measures for screening buildings, hard standings, arenas and storage areas with trees or hedges;
e. The proposal is supported by details of appropriate waste storage, management, end disposal and surface water drainage;
County Durham Plan Preferred Options 93 County Durham Plan Preferred Options
f. The proposal would not adversely impact on the general amenity of neighbouring properties and the wider area; and
g. Safe and suitable access can be achieved and in the case of commercial establishments are located close to existing bridleways or other routes suitable for trekking or hacking out where this forms part of the business.
New equestrian development in the Green Belt will normally be regarded as inappropriate development. Where the proposal involves limited infilling relating to an existing use, small scale stables will be permitted where they do not harm the openness of the Green Belt or conflict with the purposes for which the land was included in the Green Belt.
In all cases, applicants will be expected to demonstrate the adequate provision for the proper care of horses, including stabling, grazing and exercise, in accordance with the Equine Industry Welfare Guidelines and the British Horse Society standards. Equestrian development commercial establishments need to be located sufficiently close to existing residential accommodation to allow for appropriate levels of supervision. Proposals for a residential use associated with the equestrian development will be determined against Policy 13 (Permanent Rural Workers' Dwellings).
5.78 Many parts of the county, including within the Green Belt, are experiencing growth in horse riding as an outdoor recreation and leisure pursuit and subsequently an increase in demand for land to graze and stable horses. The countryside is also easily accessible from many built up areas and therefore this combination of demand and accessibility, coupled with changes in the farming economy, is making the release of agricultural land by farmers for grazing and stabling increasingly attractive. However the impacts need to be controlled to ensure the protection of the countryside together with the general amenity of neighbouring occupiers.
5.79 Careful attention needs to be paid to the design, siting and layout of any proposal to ensure that there is no harm to the character and appearance of the area, its heritage or conservation value. The cumulative impact with other similar activities in the area will also need to be considered. Any buildings and associated development should be sensitively located and constructed of appropriate materials having regard to the character of the area. For buildings in locations away from farmsteads or other buildings, timber will often be the most suitable material provided that is of a muted colour and be well maintained.
5.80 In many cases, it is other features associated with the development, rather than the principal buildings. Gateways, tracks and hard standings, maneges, storage of straw, hay or haylage, manure heaps, horse boxed, jumps, electric fences and other equipment can all contribute to the impact. A landscaping scheme will often be needed to help assimilate the proposals into the surrounding countryside and screen visual clutter through the use of native trees and hedges.
5.81 In establishing new commercial establishments, the developer will be expected to demonstrate that adequate investment is being made in the new enterprise to ensure that it is viable in the long term.
5.82 To discourage horse-riding on roads and footpaths and to maximise recreational benefits, proposals will be expected to be located near to existing bridleways unless it can be demonstrated that this is not necessary and adequate facilities are provided within the site to exercise horses.
94 County Durham Plan Preferred Options County Durham Plan Preferred Options
5.83 The management of waste, including manure, needs to take account of both the amenity of neighbouring residents and any environmental impacts such as nitrogen rich run off which can affect the quality of water courses. This would be particularly relevant in Nitrate Vulnerable Zones.
How will the Policy be monitored?
Indicator:
1. Appeals upheld contrary to this policy
Target:
1. None upheld at appeal
Question 20
This is our preferred policy. Do you have any comments?
Policy 15 - Best and Most Versatile Agricultural Land and Soil Resources
Policy 15
Best and Most Versatile Agricultural Land and Soil Resources
Development of the best and most versatile agricultural land will only be permitted where it can be demonstrated that the need for the development, its benefits and/or sustainability considerations outweigh the need to protect such land taking into account the economic and other benefits of the best and most versatile agricultural land.
Proposals which would individually or cumulatively result in a significant loss of best and most versatile agricultural land will also need to demonstrate that there are no other suitable alternative sites which could accommodate either all or part of the development on either previously developed land, or land within the built up area of existing adjacent or nearby settlements, or on poorer quality agricultural land. Where mineral working is proposed on best and most versatile agricultural land proposals should seek to minimise its loss and should outline where practicable how the methods used in the restoration of the site will enable the land to retain its longer term capability.
All development proposals should demonstrate that soil resources will be managed and conserved in a viable condition and used sustainably in line with accepted best practice.
County Durham Plan Preferred Options 95 County Durham Plan Preferred Options
5.84 This policy seeks to conserve and protect agricultural land(54)and associated soil resources. It sets out the circumstances when development of the best and most versatile agricultural land will be permitted and how soil resources will be managed and conserved in a viable condition and used sustainably in line with accepted best practice(55).
5.85 Agriculture is the predominant land use in County Durham(56). Agricultural land quantity varies from place to place and the Agricultural Land Classification (ALC) system, provides a method for assessing the quality of agricultural land with grades 1, 2 and 3a considered to be the best and most versatile agricultural land(57). There is no Grade 1 land in County Durham and less than 2% of the County is classified as Grade 2. Approximately 38% of the County is classified as Grade 3 but it is not currently possible to differentiate the amount of grade 3a and grade 3b land as a comprehensive survey of grade 3 land is not available. Where land is identified as grade 3 on the ALC maps(58) and an agricultural land classification statement is not provided the council will consider the land to be best and most versatile agricultural land unless it is proven otherwise. All proposals over 1 hectare which would have the potential to involve the loss of best and most versatile agricultural land will be expected to be accompanied by an agricultural land classification statement.
5.86 Soil is a fundamental and finite resource that fulfils many important functions and ecosystem services. For example it provides a growing medium for food, timber and other crops, as a store for carbon, water and air filtration, support for buildings, as a reservoir of biodiversity and as a buffer against pollution. Some of the most fundamental impacts on this resource occur as a result of construction activity. It is therefore important that the soil resources are managed and conserved in a viable condition and used sustainably in line with best practice. Where development proposals are permanent it is important that soil resources are used effectively on undeveloped areas of the site for landscape, habitat or garden creation or used appropriately on other suitable sites. All proposals over 1 hectare which have the potential to adversely affect soil resources will be expected to produce a strategy for the use of topsoil and/or subsoil.
5.87 When considering development proposals on unallocated sites which would result in the loss of best and most versatile agricultural land the council will consider the need for the development and the economic and other benefits of the proposal and whether they outweigh the need to protect the agricultural land. Development proposals which would either individually or cumulatively lead to the loss of a significant quantity of best and most versatile agricultural land will be resisted unless it can be demonstrated that there are no other more suitable alternative sites that could satisfactorily accommodate either all or part of the proposed development, for example on either previously developed land, or land within the built up area of existing adjacent or nearby settlements, or on poorer quality agricultural land.
5.88 The winning and working of minerals often involves the use of large areas of agricultural land as extraction is limited to where the mineral resource naturally occurs. Mineral working requires the careful handling and management of soil resources to preserve agricultural land quality. Where working is proposed on the best and most versatile agricultural land the outline strategy for the working of the site should seek to minimise its loss and should outline where practicable how the methods used in the restoration and aftercare enable the land to retain its longer term capability. In some cases the proposed after-use may not have to be for agriculture, as long as the long term potential of the
54 Land which is for the time being used (or was last used) for agricultural purposes. 55 Best practice on works affecting soil resources can be found from Defra in the Defra Construction Code of Practice for the Sustainable Use of Soils on Construction Sites, 2009. Additional guidance relating to minerals and waste sites can be found in Guidance for Successful Reclamation of Mineral and Waste sites (Defra, 2004) and the Good practice guide for handling soils (MAFF, 2000) 56 Approximately 92% of the County's land surface of 223,094 ha is classified as agricultural land. Source, Provisional Agricultural Land Classification (ALC) Dataset, Natural England. 57 The Agricultural Land Classification grades are: Grade 1 (excellent), Grade 2 (very good), Grade 3a (good), Grade 3b (moderate), Grade 4 (poor) and Grade 5 (very poor). 58 The Agricultural Land Classification Map, North East Region (http://publications.naturalengland.org.uk/publication/142039?category=5954148537204736) shows Grades 1-5, but Grade 3 is not subdivided.
96 County Durham Plan Preferred Options County Durham Plan Preferred Options
best and most versatile land is safeguarded wherever possible. Further guidance relating to mineral extraction and soil resources will be provided within the Minerals and Waste Policies and Allocations document.
How will it be monitored?
Indicator:
1. Appeals upheld contrary to this policy
Target:
1. None upheld at appeal
Question 21
This is our preferred policy. Do you have any comments?
Delivering a wide choice of high quality homes
5.89 The National Planning Policy Framework (NPPF) requires local plans to proactively drive and support sustainable economic development to deliver the homes and thriving local places we need. Identifying and meeting objectively assessed need (OAN) is set out in Policy 2 (Quantity of Development). This section covers other aspects of housing such as providing housing that is affordable, is of the right type and meets the needs of all sections of society including older persons, children, students, travellers and those that wish to build their own homes.
Policy 16 - Addressing Housing Need
Policy 16
Addressing Housing Need
To contribute towards meeting the needs of the county’s existing and future residents we will require all qualifying new housing proposals to provide a percentage of Affordable Housing(59) which is accessible, affordable and meets the needs of those residents unable to access the open housing market.
Affordable Housing Provision
Affordable housing will be sought on sites of over 10 units and in line with the percentages set out below. In rural areas, affordable housing will be sought on sites of over 5 units in line with the percentages as set out below.
59 As defined in Annex 2 of the National Planning Policy Framework.
County Durham Plan Preferred Options 97 County Durham Plan Preferred Options
Table 6 Affordable Contributions
Viability Area(60) Percentage of Housing Units
Highest Value Area 25%
High Value Area 20%
Medium Value Area 15%
Low Value Area 10%
Affordable Housing Tenure Mix
Affordable housing should be provided with a tenure mix of 80% affordable rented housing to 20% intermediate products.
Where it can be evidenced by the applicant to the council's satisfaction that that this tenure mix would make the required affordable housing contribution unviable or that alternative affordable housing products are required to meet local needs, then proposals for an alternative tenure mix as proposed by the applicant will be considered.
Off-Site Provision of Affordable Housing
In certain circumstances where it can be justified by the developer, or it is considered by the council that it is the most appropriate course of action, we will accept off-site contributions in lieu of on-site provision where:
a. There would be 5 or fewer affordable homes on the site;
b. There is clear evidence that a greater number of affordable homes could be delivered off site, in a more suitable location; or
c. The resulting financial contribution would contribute to specific regeneration activity including bringing viable vacant housing back into use.
In all instances financial contributions should be of a broadly equivalent value of developing or buying on the open market the same number of new properties of the size and type and in a similar location that would have been provided on site. The calculation for the financial contribution will take into account the following key factors:
d. The unencumbered residual land value;
e. Total number of units on site;
f. Registered Providers purchase amount;
g. Number of units for affordable housing; and
h. Total development costs.
60 As shown on Map F in the policies map document.
98 County Durham Plan Preferred Options County Durham Plan Preferred Options
Meeting the Needs of Older People
To contribute towards meeting the needs of the county’s ageing population we will require a minimum of 10% of private or intermediate housing on sites of over 10 units which, in relation to design and house type, increase the housing options of older people. Appropriate house types considered to meet this requirement include:
Level access flats;
Level access bungalows;
Sheltered Housing or Extra Care Schemes; or
Housing products that can be shown to meet the specific needs of a multi generational family.
All of these properties must be built to Building Regulations Requirement M4 (2) (accessible and adaptable dwellings) and situated in the most appropriate location within the site for older people.
On unallocated sites and where it can be demonstrated that this requirement would undermine the viability of the scheme, either in terms of financial viability or lack of market demand for these products, then as an alternative we will require at least 10% of the total units on the site to be built to Building Regulation Requirement M4(2) (accessible and adaptable dwellings). Exceptionally, this requirement will not be applied where topographical issues or other physical constraints on sites make this unviable.
Specialist Housing
The council will support the provision of specialist housing for older people, vulnerable adults and people with disabilities where:
i. The development is in an appropriate location with reference to the needs of the client;
j. It is designed to meet the particular requirements of residents;
k. Appropriate measures will be in place to ensure access for emergency vehicles and safety measures such as fire escapes; and
l. Satisfactory outside space, highway access, parking and servicing can be achieved.
5.90 Many households in County Durham who lack their own housing or live in unsuitable housing cannot afford to buy or rent suitable houses at market rates. These households need affordable housing.The Strategic Housing Market Assessment update (SHMA)(61) has undertaken an assessment of the need for affordable housing within County Durham and determined that there will be a net shortfall of 378 affordable dwellings per annum. This is the extent to which the need for affordable homes is greater than the supply.
61 https://durhamcc.objective.co.uk/portal/planning/cdpev/
County Durham Plan Preferred Options 99 County Durham Plan Preferred Options
5.91 In line with National Planning Policy Framework (NPPF) pursuing sustainable development requires careful attention to viability. The Council has undertaken an assessment of viability through the Local Plan Viability Assessment (62). This has informed realistic targets for the delivery of affordable housing which do not threaten viability and the delivery of housing, and which include an assessment of the impacts of other policy requirements included within the Plan. On sites where site specific circumstances indicate that viability is an issue, negotiations on the proportion of affordable housing required, together with other planning obligations, will continue to take place. The target levels for the delivery of affordable housing also reflect the Draft NPPF which requires at least 10% of homes to be available for affordable home ownership. The affordable housing targets will be subject to regular review, alongside the SHMA, in recognition of changing circumstances and economic conditions.
5.92 In setting targets for affordable housing delivery, it is recognised that new housing development in the highest and high value areas, where prices for new houses are more buoyant, can support the greatest level of provision. The evidence suggests that an opportunity to deliver lower levels of affordable units in medium and low value areas is also possible without compromising the viability of development. The viability areas are shown on Map F in the policies map document.
5.93 In meeting the need for affordable housing, it is important to note that a local plan is not the only mechanism for the delivery of affordable homes. Traditionally, affordable housing has been delivered through three main mechanisms. The majority of affordable housing has been funded through Homes England programmes and delivered by Registered Providers with the remainder delivered through Section 106 agreements and a small number funded directly by Registered Providers through Recycled Capital Grant Fund or capital reserves.
Tenure Mix of Affordable Housing
5.94 The Draft NPPF provides an updated definition of affordable housing this includes, affordable housing for rent, starter homes, discounted market sales housing and it identifies other affordable routes to home ownership. It is important that a variety of affordable housing options are offered to meet the circumstances of those in need and to cater for the affordable housing needs of specific groups. The SHMA suggests that a tenure mix of affordable housing across the county of 80% affordable rented housing and 20% intermediate housing would be appropriate this evidence has informed the policy. Other factors will also need to be taken into account, including the tenure mix in the existing settlement, local housing need, the viability of the site and the availability of related mortgage products.
Off-Site Provision of Affordable Housing
5.95 Following the Issues and Options consultation, it is apparent that there is not a consensus as to the appropriateness of off-site contributions for affordable housing. It is recognised that the provision of affordable housing on-site as part of a wider housing development serves to support the creation of sustainable, inclusive and mixed communities. However, it is considered that there are some circumstances in which it may be appropriate to provide affordable housing off-site. For instance where there were such a small number of properties that would be difficult for a registered provider to manage them, where off site contributions would serve to deliver more affordable housing than if delivered on site, or where the site was in an area where there is already a localised oversupply of affordable homes.
5.96 There may also be circumstances where a financial contribution of broadly equivalent value can be accepted in place of on-site provision of affordable homes, for example in order to improve existing housing stock as part of the Council's regeneration activities. However, in all instances, the developer or the Council would be expected to robustly demonstrate that the off-site provision or financial contribution was acceptable as part of the determination of the planning application.
62 https://durhamcc.objective.co.uk/portal/planning/cdpev/
100 County Durham Plan Preferred Options County Durham Plan Preferred Options
Affordable Housing Trajectory
5.97 Trajectories are a planning tool designed to illustrate the expected rate of delivery across the plan period. The affordable housing trajectory is based upon the countywide housing trajectory and assumes that each proposed allocation in the trajectory will deliver a the required quantum of affordable housing in line with the percentage targets outlined in the policy. In respect of commitments, the trajectory reflects the approved schemes. This trajectory only shows affordable housing anticipated as a proportion of market housing.
Meeting the Needs of Older People
5.98 The population of the county is already ageing and over the next few decades, there will be a ‘demographic shift’ with the number (and proportion) of older people increasing. Our baseline population projections for the Plan indicate that from 2016 to 2035 the number of people aged over 65 will increase from 105,200 to 146,300 (a 39% increase) and those aged 75 and over will increase from 45,700 to 75,700 (a 65.6% increase). As most older people usually live in small households, usually as couples and single people, a minimum of 90% of household growth over the Plan period will be in households aged over 65.
5.99 The majority of older people in County Durham own their own homes and wish to remain in owner occupation. Indeed, most wish to remain in the home they already live in for the rest of their lives. However, the SHMA also shows that there is a sizable minority of older owner occupiers who would like to move to other types of housing which better meet their needs. Their general aspiration is to move into bungalows and flats, and sometimes into specialist schemes which offer extra care and support.
5.100 At the moment the stock of bungalows and flats in the private sector across the county is much too small to meet the interest that has been expressed from older people, particularly as most flats have not been built with their needs in mind. In recent years very few properties of this type have been built and therefore the proportion of bungalows and flats in the private sector housing stock is declining.
County Durham Plan Preferred Options 101 County Durham Plan Preferred Options
5.101 The Local Plan Viability Study shows that it is generally viable for all housing sites to include 10% of private houses which are either level access flats, bungalows, sheltered housing, extra care schemes or multi generational housing, all built to Building Regulations Requirement M4 (2) (accessible and adaptable dwellings)(63). Evidence suggests there is a particularly strong demand for bungalows. On unallocated sites, we may consider revising requirements for these specified types of houses to purely a requirement for Building Regulations Requirement M4 (2) (accessible and adaptable dwellings) should this be justified by issues related to viability. This will apply in all circumstances except where topographical issues such as very steep levels or vulnerability to flooding make this impractical.
5.102 The 10% requirement for housing aimed at increasing options for older people also includes an option for developers to provide housing aimed at meeting the needs of ‘multi generational’ families. Multi generational families which include older people are rising in number as a result of financial pressures and rising care costs. There are few houses being built to meet this need. This type of housing should generally have potential for a semi-private living space within the house with an additional bathroom and perhaps kitchen facilities.
5.103 There may be particular opportunities within some housing schemes for developers to accommodate commercial sheltered housing with a resident warden or extra care schemes which offer round the clock care. Housing sites near to existing or proposed retail centres and services are likely to be particularly suitable. There may also be opportunities to provide self build plots for retirement housing in housing schemes, or a group of self build plots aimed at co-housing groups. At the present time, most self builders are older people building for their retirement.
5.104 All new housing provided for older people must meet high standards of accessibility and amenity relevant to their needs. We will also be sympathetic to households which wish to extend or adapt existing homes in order to care for older relatives, where any related impacts are acceptable.
5.105 Where viability considerations dictate that the provision of affordable housing or older person's housing is below the levels set out in the policy, the council will include an overage payment clause in the Section 106 Obligation relating to the planning permission. This will serve to secure a financial contribution upon the completion of the scheme which would reflect any changes in market conditions, typically any uplift in the market. The financial contribution will be used to provide affordable housing and housing for older people.
Specialist Housing
5.106 There will be opportunities for developers and registered providers to provide specialist housing for older people, for the disabled and for vulnerable adults on sites which are not being developed for general housing needs. Such forms of development might include nursing homes, residential care and extra care facilities and may include elements of care and support for residents.
5.107 Locational issues are important and the applicant should consider the needs of the future residents in this regard. Some residents will likely experience a greater degree of independent living than others, however depending on the needs of the resident, being situated in an established housing area, with proximity to public transport and local services can serve to promote independence. Applicants will be required to demonstrate how the location of a proposed specialist housing is appropriate to future residents.
5.108 Specialist housing should be designed with the particular requirements of the future residents in in mind and buildings should be fit for purpose, accommodating for facilities which meet resident's needs. Specific consideration should be given to access for emergency vehicles and other safety
63 The Building Regulations 2010, access and Use of buildings, approved Document M, 2015 edition incorporating 2016 amendments - for use in England.
102 County Durham Plan Preferred Options County Durham Plan Preferred Options
measures linked to the needs of residents. Specialist housing should accommodate for satisfactory outside amenity space designed with the occupiers in mind. Access and parking should seek to make suitable provision for residents, carers and visitors.
How will it be monitored?
Indicator:
1. Percentage of approved and completed housing units that meet the specific needs of older people by tenure type
2. Percentage of affordable housing units delivered by viability area
3. Affordable housing units approved and completed by tenure and viability area
Target:
1. 10% of private or intermediate housing provided on all sites to meet specific needs of older people in terms of design, form and layout
2. Viability Area Percentage of Housing Units
Highest Value Area 25%
High Value Area 20%
Medium Value Area 15%
Low Value Area 10%
3. Affordable housing with a tenure mix of 80% affordable rented housing to 20% intermediate products.
Question 22
This is our preferred policy. Do you have any comments?
County Durham Plan Preferred Options 103 County Durham Plan Preferred Options
Policy 17 - Durham University Development, Purpose Built Student Accommodation and Houses in Multiple Occupation
Policy 17
Durham University Development, Purpose Built Student Accommodation and Houses in Multiple Occupation
1. Durham University Development
Durham University should continue to evolve and compete as a high quality education-led mixed-use establishment, including arts and cultural uses, managed workspace for start-up businesses and other complementary uses.
Planning permission will be granted for new University facilities including academic, residential, sport and cultural floorspace and for the refurbishment of existing buildings where:
a. The proposal respects the character and setting of the area;
b. It safeguards and enhances the University as a vibrant, distinctive and diverse area, taking into consideration the needs and requirements of the local community;
c. The site is not in the Green Belt unless it is an existing site in the Green Belt in which case it will be considered as a major developed site and determined against the National Planning Policy Framework (NPPF);
d. There is no unacceptable impact on the setting of the World Heritage Site and opportunities are taken to enhance and better reveal its significance;
e. The proposal considers the key elements of significance of the conservation area and looks to preserve and enhance the conservation area as a whole. Development that impacts negatively on the setting and or the significance of the conservation area will not be supported, unless this harm is outweighed by public benefit;
f. It preserves and enhances listed buildings or structures and non-designated heritage assets including their settings and where appropriate, better reveals their significance;
g. There is no unacceptable harm on ecology and biodiversity, either from individual proposals or cumulatively from multiple proposals. This should include, where appropriate, the consideration of alternative locations within the University’s control that could deliver the same development but with less impact;
h. The movements of extra staff and students around the city have been considered and, where necessary, measures are provided for this demand such as widening footways, improving junctions, or through the provision of new routes for pedestrians and cyclists;
i. Parking spaces and electric vehicle charging points are provided in line with the County Durham Parking and Accessibility Standards;
104 County Durham Plan Preferred Options County Durham Plan Preferred Options
j. In the case of sport and recreation facilities a community access agreement will be required; and k. Sustainable energy opportunities, including the delivery of district heating, are exploited where possible.
2. Purpose Built Student Accommodation
The following sites are allocated for purpose built student accommodation:
Table 7 Allocations for Purpose Built Student Accommodation
Ref Site Notes
PBSA1 Leazes Road Development of the site will: Site 1 - Maintain the site's permeable leafy character
Site 2 - Retain trees as part of the development
Site 3 - Consist of refurbishment and limited infill
Site 5 - Retain trees which contribute to the character of the Conservation Area
Site 6 - Consist of refurbishment and limited infill
Site 6 - Retain trees as part of the development
PBSA2 Howlands (Josephine Development of the site will: Butler and Ustinov) Consist of limited infill
Respect the strong radial pattern of the existing buildings
PBSA3 James Barbour House Development of the site will: Retain the existing trees around the periphery of the site
PBSA4 Elvet Hill Car Park Development of the site will: Retain the existing trees
PBSA5 St Mary's Development of the site will: Consist of refurbishment and limited infill
Continue the existing built form of the development on the site
PBSA6 Mill Hill Lane and St Development of the site will: Aidan's College Retain the existing tree belts to the east of the site
Maintain a central belt of trees through the site
County Durham Plan Preferred Options 105 County Durham Plan Preferred Options
Ref Site Notes
Retain the more significant tree groups to the west of the site
Preserve the non designated heritage asset at St Aidan's College
All proposals for new, extensions to, or conversions to, Purpose Built Student Accommodation on sites not allocated for student accommodation, will be required to demonstrate:
a. That there is a need for additional student accommodation of this type in this location;
b. Consultation with the relevant education provider pursuant to the identified need; and
c. It would not result in a significant negative impact on retail, employment, leisure, tourism, housing or the council’s regeneration objectives.
All proposals for the development of Purpose Built Student Accommodation will not be permitted unless:
d. The development is readily accessible to an existing university or college academic site, or hospital and research site;
e. The design and layout of the student accommodation and siting of individual uses within the overall development are appropriate to its location in relation to adjacent neighbouring uses;
f. The internal design, layout and size of accommodation and facilities is of an appropriate standard (64);
g. The activities of the occupants of the development will not have an unacceptable impact upon the amenity of surrounding residents in itself or when considered alongside existing and approved student housing provision. Prior to occupation a management plan or draft outline management plan appropriate to the scale of the development shall be provided;
h. The quantity of cycle and car parking provided is in line with the council’s Parking and Accessibility Guidelines; and
i. The applicant has shown that the security of the building and its occupants has been considered along with that of other local residents and legitimate users.
Where appropriate, proposals in accordance with the above requirements should contribute to the re-use of listed buildings, heritage assets and other buildings with a particular heritage value. Development will be expected to sustain the significance of heritage assets and seeks opportunities to better reveal it
64 Technical housing standards – nationally described space standard https://assets.publishing.service.gov.uk/government/uploads/system/uploads/attachment_data/file/ 524531/160519_Nationally_Described_Space_Standard____Final_Web_version.pdf
106 County Durham Plan Preferred Options County Durham Plan Preferred Options
3. Houses in Multiple Occupation
In order to promote create and preserve sustainable, inclusive and mixed communities, to maintain an appropriate housing mix and to protect residential amenity, applications for new build Houses in Multiple Occupation (both Use Class C4 and sui generis) and changes of use from any use to:
a Class C4 (House in Multiple Occupation), where planning permission is required; or
a House in Multiple Occupation in a sui generis use (more than six people sharing) will not be permitted if: a. Including the proposed development, more than 10% of the total number of residential properties within 100 metres of the application site are exempt from council tax charges (Class N Student Exemption); b. There are existing unimplemented permissions for Houses in Multiple Occupation within 100 metres of the application site, which in combination with the existing number of Class N Student exempt properties would exceed 10% of the total properties within the 100 metres area; or c. Less than 10% properties of the total residential properties within the 100 metres are exempt from council tax charges (Class N) but, the application site is in a residential area and on a street that is a primary access route between Purpose Built Student Accommodation and the town centre or a university campus.
In all cases applications for new build Houses in Multiple Occupation, change of use to Houses in Multiple Occupation or a proposal to extend an existing House in Multiple Occupation to accommodate additional bed space(s) will only be permitted where: d. The quantity of cycle and car parking provided is in line with the council’s adopted Parking and Accessibility Guidelines; e. They provide acceptable arrangements for bin storage and other shared facilities and consider other amenity issues; f. The design of the building or any extension would be appropriate in terms of the property itself and the character of the area; and g. The applicant has shown that the security of the building and its occupants has been considered, along with that of neighbouring local residents.
However, a change of use to a House in Multiple Occupation would not be resisted in the following circumstance:
County Durham Plan Preferred Options 107 County Durham Plan Preferred Options
h. Where an area already has such a high concentration of council tax exempt properties (Class N) that the conversion of remaining C3 dwellings will not cause further detrimental harm to the residential amenity of surrounding occupants; or
i. Where an existing high proportion of residential properties within the 100 metres are exempt from council tax charges (Class N), on the basis that commercial uses are predominant within the 100 metre area.
Durham University Development
5.109 Durham University is a major asset to the city, shaping the built environment, contributing to the cultural and heritage offer, developing highly skilled individuals as well being a major employer and a purchaser of local goods and services. The University is also renowned for its research departments and facilitates business and industrial research, including at NETPark, the North East’s only science park. In this context, the positive impacts of the economic, social and environmental benefits brought about by the University are felt across the county.
5.110 Durham University has published its Strategy for the period 2017 to 2027. This Strategy sets out how the University will build upon their strengths including research, education and the wider student experience. It sets out the intention to globalise the University and make it a more significant player in the region, the UK and beyond. The Strategy also encompasses the Estate Masterplan 2017-2027 which provides a guide to how the University could develop the Estate in the long term. Its purpose is to provide a clear spatial framework for the delivery of the Strategy.
5.111 Part 1 of the policy relates to the University Masterplan and sets out a framework to consider the impacts of proposals for university related development including arts and cultural uses, managed workspace for start-up businesses and other complementary uses. To note, any student accommodation element of the proposals would be assessed under Parts 2 and 3 of the policy.
5.112 The small scale of the city is partly as a result of the World Heritage Site (WHS) and previous planning policy decisions to constrain the expansion of the city in order to regenerate surrounding villages. As a result Durham City has a fully encompassing Green Belt with detailed boundaries confirmed in the city of Durham Local Plan (2004). Within the City of Durham Plan a number of university sites were identified as Major Developed Sites in the Green Belt and were the subject of a specific policy however the NPPF provides clear guidance on how development on these type of sites should be considered and there is therefore no equivalent policy in this Plan.
5.113 Within the immediate environs of Durham City, the University acts as the custodian for a total of 60 listed buildings; 5 grade 1; 5 grade 2*; and 50 grade 2, and one ancient monument. It is also the guardian of numerous buildings of quality, identified through the planning process as non-designated heritage assets. The University continues to invest in the upkeep and maintenance of these buildings and structures and is also a key partner in delivering the World Heritage Management Plan.
5.114 The University estate includes large areas of green space, including sports pitches, parks, gardens and woodland, which act as green corridors forming part of a wider environmental network across the city. Whilst there is potential for harm from the individual proposals the cumulative impacts of the University’s plans must also be considered.
5.115 With a student population of 15,500 and as a key employer which employs over 4,300 people, Durham University has a major impact on how the city functions. This means that if the council wants to achieve sustainable transport solutions in Durham City it is important to fully understand the
108 County Durham Plan Preferred Options County Durham Plan Preferred Options
implications of the University’s expansion plans for the city's transport systems. Within the Masterplan the University has a clear objective of moving towards sustainable travel and decreasing car dependency. This objective will be supported by the measures in the Durham City Sustainable Transport Delivery Plan. It is also important that the provision of any additional parking spaces are assessed using the County Durham Parking and Accessibility Standards.
5.116 The redevelopment of Maiden Castle will improve and enhance this part of the University’s estate providing upgraded sport and recreation facilities. The improved development will be more attractive to host major external sporting events that will raise the city’s profile, attract visitors and generate new income. However it is critical that these facilities and similar other developments undertaken by the University, whilst improving staff and student experience must also benefit the wider community. Therefore the council will require that community access agreements are agreed to support the development of any sports or leisure facilities to enable their use by residents, visitors and local schools and community clubs.
5.117 The Durham Energy Institute is working to mitigate the University Masterplan through de-carbonising new and existing development. The University’s new build policy also confirms that their buildings should aim to be built to BREEAM Excellent (or equivalent) and be zero carbon as far as practicable.
5.118 There are further opportunities which the University are exploring that could also bring significant benefits for the city, both in relation to new buildings and new projects. Examples include generating heat from mine-water, solar carports and district heating.
Purpose Built Student Accommodation
5.119 Purpose Built Student Accommodation (PBSA) is accommodation built, or converted, with the specific intent of being occupied by students, either individual en-suite units or sharing facilities. PBSA is a building which is not classified as Use Class C4 or anything licensable as an HMO. In Durham City it is recognised that other forms of residential development such as, but not limited to, 1 bed apartments, may appeal to the student population and may ultimately be occupied by students even though they are not developed specifically as PBSA. For this reason, where it is considered that a proposal may appeal to the student population, based on the type of accommodation proposed, the size of the units and the location of the proposal, then it will be appropriate to assess the proposal against Part B of the Policy.
5.120 The University's Strategy (2017–2027) notes that in 2017, there were 15,500 students in Durham City and 2,500 students at the University’s Queen’s Campus at Stockton. The University Strategy and Estate Masterplan notes that all students at the University will be located in Durham City from the academic year 2018/19, and in this regard the Stockton campus will be re-purposed. The University Strategy sets out that by 2027, the student population at Durham University and in Durham City is targeted to be be 21,500. The impact of the University Strategy and Estate Masterplan has been subject to an Impact Study undertaken by the council (65).
5.121 The University’s aspiration, as set out in the Strategy, is to house 50-55% of students in college-affiliated accommodation by 2027. The University is seeking to achieve this by developing new colleges on their own land. It is also noted that the University will also work in partnership with some of the PBSA providers. In recognition of the importance of Durham University to the county and the scope of the University Strategy, following the call for sites undertaken in 2016, we have allocated a number of sites for student accommodation as listed in the policy and shown on the policies map. The policy includes site specific requirements associated which each allocation in order to ensure an appropriate form of development. In some circumstances, given the current built form of development on the site, a combination of refurbishment of existing buildings, with infill development
65 https://durhamcc.objective.co.uk/portal/planning/cdpev/
County Durham Plan Preferred Options 109 County Durham Plan Preferred Options
and elements of redevelopment, sensitive to the built form and site context would be appropriate. A portion of the PBSA6 allocation contains a collection of buildings designed by Sir Basil Spence, which should be preserved. Whilst the policy confirms in principle PBSA would be acceptable on the site, the form of development would be subject to consideration at applications stage. The Howlands site allocation is a current major developed site in the Green Belt therefore, only limited infill development would be appropriate.
5.122 The Plan approach aligns with that of the University Strategy in that, wherever possible the increase in student numbers in the city should be accommodated in PBSA designed and managed in a way that meets the needs of students on-site which will attract student take-up. It is however, recognised that the student housing market is not static, for example some existing provision needs upgrading, there needs to be choice in the market and that some areas of the city have high concentrations relative to the number of residents.
5.123 East Durham and Houghall Community College, New College Durham, The University Hospital of North Durham, St John’s College and St Chad’s College are other further education establishments in Durham City; and there are also Colleges of Further/Higher Education in Bishop Auckland, Consett and Peterlee within County Durham, and in Darlington and other major towns around the county’s borders. Any future expansion of these establishments may impact on the requirement for student accommodation and the situation should be kept under review.
5.124 The consideration of ‘need’ for additional student accommodation which developers must undertake shall include, but not be limited to, any evidence of waiting lists for existing places (both University and privately owned stock and, if appropriate those of any other higher education establishment), the potential contribution of schemes with planning consent; and University student growth forecasts. Developers should demonstrate what specific need the proposal is aimed at and why this need is currently unmet, giving consideration to the type of accommodation proposed. In seeking to meet need, the council recognises that PBSA can increase choice for the student population and is an alternative to HMOs.
5.125 To ensure that PBSA is designed to meet the needs of the students, it is important that the applicant can demonstrate consultation with the relevant education provider. This will ensure that accommodation reflects the accommodation requirements of the student population.
5.126 Assessing proposals for new purpose built accommodation against the criteria above will ensure that schemes are progressed in appropriate locations which meet the council’s regeneration priorities. It is recognised that PBSA can support the viability of a wider development and support regeneration opportunities. However, where PBSA is proposed on town centre sites that could have been used for other types of more traditional city centre uses such as retail or leisure it is important that PBSA will only be one element of mixed use schemes (such as was the case with the redevelopment of the Gates) to ensure that the impact on the city centre’s vitality and viability is minimised
5.127 New student accommodation should not be built at the expense of general housing as the council must address the need for new family and affordable housing. In order to protect the delivery and supply of sites for general housing, proposals for purpose built student accommodation on sites allocated for general housing, will not be acceptable.
5.128 In order to promote sustainable methods of travel, PBSA should be readily accessible to university or other relevant teaching buildings. Developments should be sited to take advantage of opportunities for walking, cycling and the use of public transport.
5.129 PBSA should be designed to meet the accommodation needs and aspirations of the student population. The development should be accessible and appropriate to disabled students. It is considered prudent for the design of PBSA to build in flexibility to ensure that it could potentially
110 County Durham Plan Preferred Options County Durham Plan Preferred Options
appeal to other users. For instance, outdoor areas designed for student amenity areas could be re-purposed for car parking should it be required in line with a future use on the site. Developers should ensure that there is no unacceptable effect on residential amenity in the surrounding area through increased noise, disturbance or impact on the street-scene either from the proposed development itself or when combined with existing accommodation. The impacts of a large number of students living in an area maybe more easily mitigated when they are living in purpose built accommodation which has a management plan, rather than a number of HMOs.
5.130 Implementation of the management plan will be controlled through the use of planning conditions or an appropriate legal agreement. The management plan should set out what measures will be put in place to ensure the best integration of the development with the local community and neighbours. It will also address issues such as (but not limited to), the tenants moving in and out at the beginning and end of each term, management of the building, tenancy agreements, fire and health and safety and community liaison. The management plan should also address opportunities for waste recycling.
5.131 The council's Parking and Accessibility Standards for Non Residential Development include standards for student accommodation. The standard in Durham City is different from the rest of the county in recognition of the fact there is a controlled parking zone (CPZ) and students would not be issued with permits to park in the CPZ. It requires 1 space per 5 members of staff plus disabled persons parking space. No requirement is made for student car parking if the accommodation is within the CPZ. Outside the CPZ the requirement is 1 per 5 members of staff plus 1 space per six students. Cycling parking requirements are a minimum of 1 enclosed covered space per 5 students plus 1 short stay space per 20 students. Applications should accord with the most recently approved iteration of the County Durham Parking and Accessibility Standards
5.132 Students and student properties are often targeted for crime. It is considered important to pay particular attention to the security of PBSA and to ensure the safety of its occupants and other legitimate users (who may include members of the public accessing on site facilities by agreement such as an on-site café or leisure facility). The applicant will be expected to make provision for security of the building in the design of the scheme.
Homes in Multiple Occupation
5.133 A House in Multiple Occupation (HMO) under planning legislation is defined as a house or flat occupied by a certain number of unrelated individuals who share basic amenities and is classified by the Uses Classes Order as Class C4 (between 3 and 6 residents); and Sui Generis (more than 6 residents). Planning permission is not required for changes of use from Class C3 (residential) to Class C4 (HMO) unless an Article 4 Direction has been made for a particular locality. It is possible to apply for a dual use (e.g. Class C3 and Class C4), in Durham City, Part C of this policy will apply to the assessment of such proposals, given the likelihood of occupation as an HMO.
5.134 HMOs can provide accommodation for a wide range of groups including professionals, students, migrants, and people on low incomes. In County Durham the majority of HMOs are located in Durham City and are occupied by students of Durham University.
5.135 Given the relatively large size of the University in relation to that of the city, students make up a significant proportion of the term time population contributing greatly to its culture, economy and vibrancy. However there can also be adverse impacts on the amenity of residents in areas where student HMOs are dominant. This policy will therefore be used to assess the acceptability of a proposal for an HMO, balancing the contribution that such a development will make to meeting housing demand against the potential harm that might be caused to the character and amenity of the surrounding area
County Durham Plan Preferred Options 111 County Durham Plan Preferred Options
and the suitability of the property concerned. It is however recognised that the University and its students undertake positive actions to help mitigate these challenges such as volunteering, community liaison and policy on anti-social behaviour.
5.136 HMOs are not spread evenly throughout the city. The highest concentrations are in the viaduct area, where over 90% of all properties are thought to be students living in HMOs benefiting from a Class N council tax exemption. In recent years, more students have been occupying houses around Elvet and Whinney Hill, which is very close to the main University campus and students' union. There is a general perception that students want to live as close to the city centre as possible. However, because of increasing demand, students are also moving into other areas further afield.
5.137 It is estimated that there are around 350 HMOs that fall under mandatory HMO licensing. It is also suggested that there are an additional 1,200 - 1,400 two storey or smaller HMOs in Durham City. This may be an underestimate as not all HMOs are occupied by students. In Durham City, HMOs are overwhelmingly occupied by students. For these reasons, for applications for HMOs in Durham City, the assumption is that they will be occupied by students.
5.138 The council’s approach is to seek to maintain and create sustainable inclusive and mixed communities in Durham City. Residents have expressed concerns that concentrations of student accommodation in HMOs amongst the general housing stock can negatively impact upon residential amenity and change the overall character of an area. This is primarily as a result of noise at antisocial hours, the general appearance of properties, refuse management and parking issues. Properties becoming unoccupied outside of term times can also have a negative impact upon remaining residents.
5.139 The council has introduced Article 4 Directions to remove permitted development rights for change of use from C3 to C4 for Durham City, Framwellgate Moor, Newton Hall and Pity Me. We will consider the introduction of further Article 4 Direction’s where appropriate and will also give consideration to removal of permitted development rights on new housing outside of the Article 4 Direction area.
5.140 Part 3 of the policy uses a threshold of 10%. This 'tipping point' has been derived from section 2 of the ‘National HMO Lobby Balanced Communities and Studentification Problems and Solutions’, which was published in 2008. The policy approach recognises that it is the cumulative impact of HMOs that has an impact upon residential amenity and can change the character of an area over time.
5.141 In order to assess the percentage of student exempt properties, the council will use council tax information consisting of those properties with Class N exemption mapped using the council’s GIS mapping system. Council tax data provides an independent, secondary and consistent data set to understand the presence of student properties within general market housing. The council will make use of council tax data relating to the relevant academic year and this will be updated annually. An individual’s council tax status is a private matter and subject to data protection. Therefore, in line with the policy whilst a percentage figure will be generated for each application, it is not possible to note the location of these properties or to confirm the number of properties this relates to.
5.142 An exemption from council tax is only possible if the property is solely occupied by students. If one occupier of an HMO is not a student the property cannot benefit from a Class N exemption. It is considered that the presence of non-students in a HMO may change the character of the property and accordingly the impact upon residential amenity of neighbours and the character of the wider area.
112 County Durham Plan Preferred Options County Durham Plan Preferred Options
5.143 Part 3 of the policy considers the proportion of Class N student exempt council tax properties within 100 metres of the application site. It is considered that the use of a 100 metre radius from the application site serves to provide an understanding of the potential cumulative impact of the localised concentration of Class N student exempt properties and the impact that the proposed development would have on this concentration.
5.144 It is recognised that there may be a time lag between permission being granted and implemented. Particularly, as occupation of properties will likely follow the cycle of the academic year. There may therefore be a situation where a number of commitments are in place but, are not occupied therefore are not registered as Class N student exempt. The policy provides a means to consider the impact of these unimplemented consents on a residential area in combination with the council tax data.
5.145 PBSA, by its very nature, can house a large number of students. Whilst these forms of development are a distinct and separate form to HMOs, student populations returning to and from and accessing PBSA through a predominantly residential area can impact upon residential amenity. Cumulatively, alongside HMOs this can have an impact upon the character of an area. The policy therefore seeks acknowledge the impact of student populations in a neighbourhood for example the impact of comings and goings along primary access routes between PBSA and the town centre or a university campus.
5.146 In relation to parking each application will be assessed on an individual basis taking into account the capacity of the street, the controlled parking zone (CPZ), and the council’s adopted Car Parking and Accessibility Guidelines.
5.147 Poor management of rubbish and recycling at HMOs can lead to unattractive frontages, problems with vermin and raise concerns over health and safety. Such issues can affect the amenity of nearby properties and may lead to complaints from neighbouring residents. These matters should therefore be appropriately addressed at the planning application stage. Applications for new build or change of use to an HMO will be expected to be accompanied with appropriate details of how household waste and recycling will be stored and presented for collection at the property. This should include layout drawings of the application site and its surroundings, clearly indicating the bin storage area. Acknowledgement should be made of the fact that the occupiers of an HMO may generate more waste than a single household with the same number of occupiers.
5.148 The council would like the areas with high concentrations of HMOs to become more mixed. However, there may be some cases where localised communities are already so imbalanced that the policy objective of protecting a balance is unlikely to be achieved. In these cases owners of Class C3 dwellings may find difficulty in finding a purchaser for continued Class C3 use and may therefore wish to change to Class C4/HMO use. In considering whether to make an exception in such cases the council will have regard to things such as:
The proportion of existing Class N council tax exempt properties within 100 metres of the application site and their impact upon the character of the area in terms of whether such a concentration might be likely to affect the amenity of normal family life;
There is documented evidence of unsuccessful active marketing of the property as a Class C3 dwelling, with at least one recognised estate agent at local market levels, over a continuous period of at least 12 months; or
Other circumstances where the applicant can provide evidence which confirms that the policy restriction is causing severe personal hardship.
County Durham Plan Preferred Options 113 County Durham Plan Preferred Options
5.149 There are some instances where a high proportion of residential properties are exempt from council tax charges in a given area because there is a low proportion of other residential uses. An example of this would be in a town centre location where other uses are dominant and a small number of Class N exempt properties equate to a large proportion. In such circumstances, a HMO use may be appropriate, for instance in an upstairs flat above a retail unit. Such an approach would not impact upon the character of residential areas or the amenity of residents.
How will the Policy be monitored?
Indicator:
1. Number of new bedspaces in HMOs approved
2. Number of units approved and completed on allocated PBSA sites
3. Percentage change of total HMO's in Durham City
4. Number of new bedspaces in PBSA approved
5. Appeals upheld contrary to this policy
Target:
1. Related to identified need
2. No Target
3. No Target
4. Related to identified need
5. None upheld at appeal
Question 23
This is our preferred policy. Do you have any comments?
Question 24
These are our preferred site allocations for PBSA? Do you have any comments?
114 County Durham Plan Preferred Options County Durham Plan Preferred Options
Question 25
Are there any other sites that should be allocated for PBSA? Please give reasons.
Policy 18 - Sites for Travellers
Policy 18
Sites for Travellers
Proposals for new Traveller Sites or extensions to existing sites will be permitted provided that:
a. The site is within an existing settlement or is immediately adjacent to a settlement providing employment, schools, medical facilities, public transport and other local services;
b. The site is within short and safe walking distance of services and facilities or a public transport route;
c. The development is sympathetic to the scale of any adjoining settlement;
d. The scale or location of the development will not detract from the amenity or living conditions of local residents or occupants of the site;
e. The development can be integrated into the landscape and reflects the character of the surrounding area;
f. The site has been comprehensively planned to meet statutory licensing requirements for caravan sites and takes into account the needs of the households that are to occupy it and any impacts on adjoining residents amenity, including screening, storage, circulation, parking and any employment uses proposed; and
g. The development is not located in the Green Belt.
If temporary sites are needed to enable existing sites to be refurbished, nearby locations will be considered in the first instance and permission granted on a temporary basis.
Temporary ‘stop over’ areas related to common travelling routes will be permitted where their impact is reasonable when weighed against short term use.
5.150 County Durham has significant numbers of gypsies and travellers. Most live in housing but a sizable population live on six council sites and a number of authorised private sites across the county. County Durham has the second highest number of social pitches for gypsies and travellers of all English authorities and over a third of all pitches for gypsies and travellers in the North East. The council also provides six temporary 'stop over' areas in the county which are made available for 28 days or less each year for seasonal use, also enabling gypsies and travellers to travel to popular
County Durham Plan Preferred Options 115 County Durham Plan Preferred Options
events like Appleby Fair. The council takes responsibility for maintaining gates, fencing, grass cutting, and the access points to these areas. Refuse collection and temporary toilets are also provided to gypsies and travellers using other areas, to enable them to travel and maintain their cultural lifestyle.
5.151 We have recently completed a comprehensive refurbishment programme of all of our sites to modern standards and have introduced modern management regimes. This was the most comprehensive refurbishment programme of its type in the country. Ten additional pitches were created as part of this process. The distribution of social sites and pitches across the county is:
13 double pitches at Tower Road, Greencroft, Stanley;
19 double pitches at Drum Lane, Birtley;
19 double pitches at Adventure Lane, West Rainton;
25 single pitches at St Phillip's Park, Coundon Grange;
25 double pitches at Ash Green Way, Bishop Auckland; and
25 double pitches at East Howle, Ferryhill.
5.152 The disruption created by the refurbishment extended over a number of years commencing in 2009 and being completed in February 2015. Gypsies and travellers normal settlement patterns on pitches were significantly disrupted over this period. Standard vacancies were temporarily filled by gypsies and travellers dispersed from other sites; some gypsies and travellers moved away from the county, some moved into housing; others who might have moved into the county or from housing on to sites did not. On completion of refurbishment it took some time for gypsies and travellers to return to their original sites.
5.153 Following completion of the refurbishment, a substantial number of new lettings became available on social sites across the county. The availability of high quality, vacant pitches attracted a significant number of gypsies and travellers from outside the county, a trend which seems unlikely to continue into the future. Since refurbishment there have also been major changes to management practises relating to sites including increases to pitch fees, changes to the allocation process for pitches, and the development of enforcement processes relating to arrears. These significant changes continue to give rise to volatility in trends relating to lettings and termination on pitches, and disruption to information systems used to monitor trends. Changes will take some time to bed in.
5.154 The Travellers Site Needs Assessment concludes that for the ten year period to 2026 there will be need for additional pitches for five gypsy and traveller households. However, since the base date of the assessment, an additional pitch has been granted planning permission at Whinfield Farm, Darlington which will accommodate two gypsy and traveller households. This leaves an outstanding need for pitches to accommodate three additional households over the ten year period. The number of new private pitches for gypsies and travellers granted planning permission as a result of planning applications has averaged around five per year over the last five years. It is therefore reasonable to expect that this need will be met through continuing permissions arising from planning applications over the next few years and there is therefore no need to identify any additional sites.
5.155 There are also three sites for travelling showpeople in the county at Coxhoe, Tudhoe and Thornley. Travelling showpeople have specific requirements which include the need for good access to the road network to travel to fairs and shows, along with space within sites to store and maintain equipment.
116 County Durham Plan Preferred Options County Durham Plan Preferred Options
5.156 An assessment of the need for new plots and sites for travelling showpeople has been carried out in the Travellers Site Needs Assessment, in discussion with families on existing sites. This concluded that no new plots and sites will be needed for travelling showpeople.
5.157 Applications for new private sites and extensions to existing sites will be assessed in relation to the criteria in this policy. The social requirements of traveller families are, of course, the same as any other family. The Travellers Site Needs Assessment also suggests that gypsy and traveller families have larger families than average. Like everyone else, travellers require good access to shops, education, health and other social facilities. All private caravan sites are also statutorily required to be licenced under the Caravan Sites and Control of Development Act, if planning permission is granted.
5.158 In addition to this policy, proposals for new sites and pitches will be subject to other policies in the Plan in the same way as any other type of development, including for example flood risk which would possibly impact on the expansion of four of the six existing sites. In particular, traveller sites, temporary or permanent, are considered inappropriate in the Green Belt and will not be permitted unless very special circumstances can be demonstrated.
How will the Policy be monitored?
Indicator:
1. Net additional Traveller pitches and plots approved and completed by type.
2. Status of five year supply of pitches and plots.
Target:
1. A pitch for 1 Gypsy and Traveller household delivered by 2026.
2. At least a 5 year supply.
Question 26
This is our preferred policy. Do you have any comments?
Policy 19 - Children's Homes
Policy 19
Children's Homes
In order to promote the creation of sustainable, inclusive and mixed communities, applications for children’s care homes, will only be permitted where:
County Durham Plan Preferred Options 117 County Durham Plan Preferred Options
a. Sites offer a positive and safe environment for the occupants of the premises ensuring that there is appropriate access to services and facilities;
b. The occupants would not be placed at any risk having regard to the latest crime and safety statistics in the area and that this has been agreed in advance with Durham Constabulary, the council's children's services and other appropriate agencies;
c. There is no unacceptable, cumulative impact relating from concentrations of similar establishments within the locality through liaison with Durham Constabulary, Children's Services and any other appropriate agencies;
d. It is unlikely to cause unacceptable impact on the residential amenity;
e. Appropriate measures will be in place to ensure access for emergency vehicles and safety measures such as fire escapes; and
f. Satisfactory outside space, highway access, parking and servicing can be achieved.
In all instances, a planning application must be supported by a management plan which incorporates a locality risk assessment, for approval by the Local Planning Authority in consultation with Durham Constabulary, Children's Services and any other appropriate agencies.
5.159 In 2016 the government set out its ambitions and strategy to reform Children’s Social Care. The government’s vision is that every child in the country, whatever their background, whatever their age, whatever their ethnicity or gender, should have the opportunity to fulfil their potential. For the around 70,000 children who are looked after this means that their experience of care should prepare them for a future where they are able to fulfil their potential and ambitions.
5.160 The children and young people living in children’s homes are among the most vulnerable in society. Whilst children's homes have traditionally been for children under 16, provision for young people beyond the age of 16 years old would also be determined against this policy or Addressing Housing Needs. Many have special educational needs or disabilities, including social, educational and mental health difficulties and many are victims of abuse or neglect. It is therefore vital that we do everything possible to improve their experience of being looked after in care, helping them to overcome their previous experiences, and setting them up for futures which allow them to achieve their potential.
5.161 In order to understand the issues surrounding supply and demand and to get a national picture of the needs of the children placed on welfare grounds, Government set up a National Coordination Unit in May 2016. With the data gathered by the unit the Government is developing options for how secure places can be better planned, co-ordinated and joined up at national level, to better meet the needs of young people needing secure accommodation.
5.162 A Review by Sir Martin Narey suggested that children should be placed within 20 miles from their home. Nationally, 37% of children in children’s homes were placed over 20 miles from home and outside their local authority at 31 March 2015.
5.163 Within County Durham, there are currently 44 registered providers, 27 of which are registered children's homes, which is the largest number in the north of England (Ofsted data). In order to ensure that any further provision is well managed and the needs of children are being met by offering safe and positive environments, early discussions will be required between Children’s Services, Planning
118 County Durham Plan Preferred Options County Durham Plan Preferred Options
Services and other external agencies as appropriate including Durham Constabulary. Proposals for new children's homes will be expected to demonstrate that they are meeting an identified local need and the provision best replicates a family home environment.
5.164 In support of any planning application, evidence will need to be provided that the needs will be met in terms of access to any services and facilities and to ensure that any necessary safeguards are put in place including having had regard to any crime or safety concerns of the particular area. A locality risk assessment will be required which is in line with the Care Standards Act and will need to submitted in support of a planning application. This should be undertaken through consultation with relevant organisations including Durham Constabulary and Children Services and will be required to also take into account the cumulative impact of any similar establishments in the locality and the impact this could have of emergency services.
5.165 In addition to the safeguarding and general needs of the children, consideration must also be given to the existing residents in terms of residential amenity. Any proposals must demonstrate that there will be no unacceptable impact on the character of the area.
How will the policy be monitored?
Indicator:
1. Appeals upheld contrary to this policy
Target:
1. None upheld at appeal
Question 27
This is our preferred policy. Do you have any comments?
Policy 20 - Type and Mix of Housing
Policy 20
Type and Mix of Housing
On all new housing developments the council will seek to secure an appropriate mix of dwelling types and sizes, taking account of existing imbalances in the housing stock, site characteristics, viability and market considerations, and, the opportunity to facilitate self build or custom build schemes.
County Durham Plan Preferred Options 119 County Durham Plan Preferred Options
5.166 The county has an imbalanced housing stock in relation to type and mix, with for example a higher proportion of terraced housing compared with the national average. This is largely a result of the industrial legacy. The council has started to improve its economy and to maximise the opportunities for growth across the county. In order to support these economic ambitions and expectations of residents we need a complimentary housing offer with better homes in the right locations. Our housing need therefore goes beyond increasing the supply of housing and this has been reflected as far as possible in the delivery strategy underpinning the Plan.
5.167 There are parts of County Durham, particularly in the east and south of the county, that are associated with low demand for housing. In such instances it will be important to ensure that development does not perpetuate low demand, for example through the delivery of entry-level properties. We therefore need to ensure an appropriate choice and mix to meet the requirements of a range of household sizes, ages and incomes.
5.168 The Strategic Housing Market Assessment (SHMA) provides information on the current dwelling stock profile and household preferences. Requirements in Policy 16 (Addressing Housing Need) for affordable housing and for housing which increases the options of older people are informed by this assessment, along with the viability assessment for the Plan. Additional data in the SHMA can help to inform an appropriate mix of dwelling types and sizes on all new housing developments. Wherever possible, new development should seek to address these preferences. However it is likely that flexibility on the housing composition of schemes will be required in some circumstances, for example on some smaller sites where it may be impractical. Flexibility may also be required where there are specific physical site constraints or where there may be market demand or viability issues.
Self Build and Custom Build
5.169 Planning guidance advises that self build or custom build is where the initial owner has primary input into the final design and layout of their own home. The level of input can vary considerably, from hands on building of all or parts of a home to commissioning professionals to manage the building process.
5.170 The UK has much lower rates of self and custom building than other European countries. National figures suggest the sector currently accounts for between 7-10% of completions, compared to around 80% in Austria and 60% in France. The Government has introduced a number of measures to support the self and custom build sector and remove barriers which prevent people from building or commissioning their own home. This includes supporting a portal to act as a one stop shop for advice managed by the National and Custom and Self Build Association (Nacsba) (66).
5.171 The government also requires council’s to establish demand for self and custom build and to ensure that there is the opportunity for this demand to be met. As part of our statutory obligations (67) we have established a register for those with an interest in purchasing a serviced plot which we will have regard to when carrying out our functions in relation to housing, planning, land disposal and regeneration(68).
5.172 We also have a statutory obligation to grant sufficient planning permissions to match the level of demand for serviced plots for self/custom build which is evident from our register. These must be capable of providing serviced plots within the lifetime of the permission. At the present time we have sufficient planning permissions in place to more than meet this requirement. However, we are also exploring additional ways in which self building and custom building can be encouraged in appropriate locations, including identifying any barriers that need to be overcome.
66 https://www.selfbuildportal.org.uk/ 67 The Self Build and Custom Housebuilding Act 2015; The Self-build and Custom Housebuilding Regulations 2016; The Self-build and Custom Build (Time for Compliance and Fees Regulations 2016 68 http://www.durham.gov.uk/article/7578/Building-your-own-home
120 County Durham Plan Preferred Options County Durham Plan Preferred Options
How will the Policy be monitored?
Indicator:
1. Housing units approved and completed by dwelling type and size
2. Numbers on the self and custom build register
3. Numbers of planning permissions granted which are capable of delivering serviced plots
Target:
1. No Target
2. No Target
3. More or equivalent planning permissions granted which are capable of delivering serviced plots than numbers on the self and custom build register
Question 28
This is our preferred policy. Do you have any comments?
County Durham Plan Preferred Options 121 County Durham Plan Preferred Options
Protecting Green Belt land
5.173 Great importance is attached to our Green Belt, which covers a total land area of 8,726 hectares. The Green Belt's essential characteristic is to prevent urban sprawl by keeping land permanently open. The National Planning Policy Framework (NPPF) sets out the five purposes of a Green Belt:
To check the unrestricted sprawl of large built-up areas;
To prevent neighbouring towns merging into one another;
To assist in safeguarding the countryside from encroachment;
To preserve the setting and special character of historic towns; and
To assist in urban regeneration, by encouraging the recycling of derelict and other urban land.
5.174 The Green Belt was designated in three distinct areas and for different purposes as set out below. There was also an additional area in the north west of the county which was proposed as Green Belt to the north of Consett and Stanley.
City of Durham Green Belt
5.175 The Green Belt surrounds Durham City, extends to the east of Bearpark and then southwards towards Croxdale and then northeastwards to Sherburn and West Rainton. Whilst the boundaries of the Green belt were only formerly adopted in the City of Durham Local Plan in 2004, the history spans to 1955 where the proposals were first introduced. The proposals were rejected in 1968 and instead it was suggested that the City would be best served by way of an Area of High Landscape Value.
5.176 Durham City now has a fully encompassing Green Belt which was designated in the Durham County Structure Plan Review (adopted 1999) with boundaries identified in the City of Durham Local Plan (2004). The Durham City Green Belt largely aligns with an Area of High Landscape Value (designated in the County Durham Structure Plan 1968) which extended to the south-east, south and west of the city. The exception is the Green Belt designation to the north and north-west of the city. The original purpose of the Durham City Green Belt, as referenced within the Durham City Local Plan 2004 was 'to preserve the setting and special character by preventing unplanned outward expansion of the City and coalescence with the surrounding villages'. The development strategy in the 2004 Durham City Local Plan is also reflected stating that 'the most appropriate location for new development in the District, if it cannot be accommodated within Durham City, is in the larger villages outside the Green Belt which are readily accessible to the City.
North East Durham Green Belt
5.177 The Green Belt is located to the north of Seaham and forms a strategic gap between Seaham and Ryhope in the south of neighbouring authority Sunderland. The Green Belt extends between Lord Byron's Walk and Ryhope Dene and includes land to the west of Tuthill Quarry to Ryhope railway adjacent to Seaton Village and to the north of the B1404 towards the administrative boundary.
5.178 The North East Durham Green Belt was designated in the County Durham Structure Plan review (1999) with boundaries established in 2001 through the Easington Local Plan (adopted 2001). The purpose was to check the unrestricted sprawl of the Tyne and Wear conurbation, to prevent settlements merging and to encourage urban regeneration.
122 County Durham Plan Preferred Options County Durham Plan Preferred Options
North Durham Green Belt
5.179 The North Durham Green Belt reaches around Chester-le-Street and along the north of the A693, encircles Urpeth and Ouston and then eastwards towards Tyneside. The Green Belt seeks to prevent coalescence of Perkinsville, Pelton, Beamish, High Handenold, Kibblesworth and Birtley and maintains the open countryside between Chester-le-Street and Pelton. To the east, the Green Belt maintains open countryside between Shiney Row, Washington (Fatfield, Harraton and Rickleton), Bournmoor and Fencehouses.
5.180 The North Durham Green Belt was designated in the County Structure Plan Review (adopted in 1999) with boundaries established in 2003 through the Chester-le-Street Local Plan. The North Durham Green Belt aims to check the unrestricted sprawl of the Tyne and Wear conurbation, to prevent settlements within the area from merging and to encourage urban regeneration.
Proposal for new areas of Green Belt
5.181 The NPPF is clear that the general extent of Green Belts across the country is already established and areas of new Green Belt should only be established in exceptional circumstances. As part of the consultation on the Issues and Options (2016), a number of proposals were put forward however none of the proposals demonstrated: why normal planning and development management policies would not be adequate; what major changes in circumstances have occurred; what the consequences of the proposal would be for sustainable development; the necessity of the Green Belt and its consistency with other strategic plans for adjoining areas and how the proposed Green Belt would meet the other objectives of the NPPF.
Policy 21 - Green Belt
Policy 21
Green Belt
The Green Belt, as shown on the policies map, will be provided with the strongest possible protection. The construction of new buildings will be regarded as inappropriate and will not be permitted unless very special circumstances are demonstrated with substantial weight given to any harm to the Green Belt. The exceptions to this are:
a. Buildings necessary for the purposes of agriculture or forestry;
b. Provision of appropriate facilities (in connection with the existing use of land or a change of use) for outdoor sport, outdoor recreation and for cemeteries and burial grounds and allotments, as long as it preserves the openness of the Green Belt and does not conflict with the purposes of including land within it;
c. The extension or alteration of a building providing that is does not result in disproportionate additions over and above the size of the original building;
d. Replacement of a building, providing it is in the same use and not materially larger than the one it replaces; and
County Durham Plan Preferred Options 123 County Durham Plan Preferred Options
e. Limited infilling in inset villages, and limited affordable housing for an identified local, community need; or
f. Limited infilling or the partial of complete redevelopment of previously developed sites (excluding temporary buildings) providing the proposal has no greater impact on openness or the purpose of including land within it or where the development would reuse previously developed land and contribute towards meeting an identified local affordable need without causing substantial harm.
Other forms of development which may not be inappropriate in the Green Belt, providing they preserve the openness and do not conflict with its purpose include:
g. Mineral extraction;
h. Engineering operations;
i. Local transport Infrastructure which can demonstrate a requirement for a Green Belt location;
j. The re-use or conversion of an existing building which is permanent and of substantial construction;
k. Material changes in the use of land such as changes of use for outdoor sport or recreation, or for cemeteries and burial grounds; and
l. Development brought through a Community Right to Build Order or Neighbourhood Development Order.
Opportunities for increased or enhanced access to the countryside as well as improvements to landscapes, visual amenity and biodiversity will be supported where they will maintain openness and do not harm the purposes of the Green Belt either individually or cumulatively.
5.182 There is a presumption against inappropriate development in the Green Belt unless very special circumstances can be demonstrated. The National Planning Policy Framework (NPPF) sets out a number of exceptions: buildings for agriculture and forestry; appropriate facilities for outdoor sport, outdoor recreation and for cemeteries; proportionate extensions or alterations of a building; replacement buildings which are not materially larger; limited infilling and limited affordable housing for community needs and partial or complete redevelopment of previously developed land which do not have a greater impact on openness. The NPPF also sets out other forms of development which may not be inappropriate in the Green Belt including: mineral extraction; engineering operations and transport infrastructure.
5.183 When located in the Green Belt, elements of many renewable energy projects will comprise inappropriate development. In such cases developers will need to demonstrate very special circumstances if projects are to proceed. Such very special circumstances may include the wider environmental benefits associated with increased production of energy from renewable sources.
124 County Durham Plan Preferred Options County Durham Plan Preferred Options
How will the Policy be monitored?
Indicator:
1. Number of planning applications and type of development approved in the Green Belt contrary to this Policy
Target:
1. No planning applications approved in the Green Belt contrary to this Policy
Question 29
This is our preferred policy. Do you have any comments?
Policy 22 - Non-Strategic Green Belt Amendments
Policy 22
Non-Strategic Green Belt Amendments
In order to reaffirm the continued permanence of the Green Belt the following sites are to be removed:
a. Former Skid Pan, Durham City;
b. Lumley Boys School, Great Lumley; and
c. Fernhill, Durham City.
5.184 Green Belt boundaries are to be permanent in the long term and capable of enduring beyond the Plan period. During the Issues and Options consultation, representations were invited where it was believed that a change to a Green Belt boundary would be justified and what exceptional circumstances warranted that change. All sites were also considered as part of the Green Belt Assessment(69).
Skid Pan, Durham City
5.185 The skid pan area is a derelict, redundant site which until recently was used by Durham Constabulary as a skid pan and car park as part of the former Police Headquarters on Aykley Heads. The adjoining former police headquarters site has now been demolished and is under construction
69 https://durhamcc.objective.co.uk/portal/planning/cdpev/
County Durham Plan Preferred Options 125 County Durham Plan Preferred Options
for a total of 217 houses. However the planning permission does not include the former skid pan or car park site due to these being located in the Green Belt. The site has been assessed within the Green Belt Assessment and it is concluded that it does not perform strongly against the Green Belt purposes and offers the opportunity to create a durable, permanent boundary. The exceptional circumstances identified for the removal of this site from the Green Belt are to ensure that a fully comprehensive, design solution can be found for this area of redundant land which if left would be an unsightly area of derelict land which could attract anti-social behaviour. The site is previously developed site and would be otherwise suitable for housing and is therefore proposed as a housing allocation for 50 dwellings in Policy 5 (Housing Allocations).
Former Lumley Boy's School, Great Lumley
5.186 The proposed development site is set on the western edge of Great Lumley. The site fronts onto Fenton Well Lane, a country road without footpaths, where a stone wall forms the front boundary of the site. It is bounded by agricultural land to the north and west, with Fenton Well Lane lying to the south, and a cluster of residential properties approximately 50m to the east. The site is previously developed land with the remnants of a derelict building which is becoming unpleasant in appearance on the edge of the village. There have also been reports of vandalism and anti-social behaviour with the site becoming a target for unwanted behaviour. The previously developed nature of the site provides some opportunity for development. The exceptional circumstances that exist is that this is a previously developed site, close to the village of Great Lumley where the boundary should be amended to ensure the permanence of the Green Belt boundary in the long term. Any development will need to be in accordance with other policies within the Plan to ensure any site specific mitigation.
Fernhill, Durham City
5.187 Fernhill is a residential dwelling set within garden land to the south of Club Lane and to the west of the A167. The site forms part of the built up area of Durham City and is bound by mature planting and vegetation. Durham City is the primary settlement within the county and therefore the site offers a high quality development opportunity which would be well screened and would provide for sustainable development opportunities. The removal of the residential dwelling from the Green Belt would ensure the permanence of the Green Belt boundary in the long term. Any development will need to be in accordance with other policies within the Plan to ensure any site specific mitigation.
How will the policy be monitored?
This policy will be monitored through the monitoring of Policy 5.
Question 30
This is our preferred policy. Do you have any comments?
126 County Durham Plan Preferred Options County Durham Plan Preferred Options
Delivering Sustainable Transport
5.188 County Durham's dispersed settlement pattern creates specific transport issues. The majority of residents do not live, work, shop or spend recreational time all in one place. There are also parts of the county where there is little or no alternative to using the private car or access to work and facilities is difficult.
5.189 Whilst the planning system cannot directly change people's travel behaviour, it can influence the delivery of more sustainable transport choices by seeking to put new development in locations which minimise the distance and time of journeys, making the best use of existing public transport hubs and the highways network, while delivering new sustainable transport choices.
5.190 It is important that we maximise opportunities to access sustainable forms of transport for residents of both existing and new developments. Therefore, the design of new development should proactively seek to provide opportunities for the integration of walking, cycling and public transport as well as encouraging car sharing and electric vehicles. It should also encourage efficient and sustainable growth of freight and minimise the number of road journeys created by business and industry.
Walking and Cycling
5.191 In addition to our local cycling and footpath networks, there are long distance routes, including the nationally protected Pennine Way and C2C (Coast to Coast) and the regionally significant Teesdale Way, Weardale Way and Heritage Coastal Path which make a significant contribution to the network, encouraging and enabling walking and cycling for recreation and travel. Many of the county’s important paths are designated as Public Rights of Way and Railway Paths and any potential impact upon these paths will need to be considered in accordance with Policy 28 (Green Infrastructure) and have regard to the Walk, Ride, Cycle, Rights of Way Improvement Plan for County Durham 2015-2018(70).
Public Transport
5.192 Bus travel is by far the most used form of public transport in County Durham. A dispersed settlement pattern, low car ownership and an ageing population are all reasons why the bus service is so important. Bus services in rural areas are often a lifeline to smaller communities and the council will work with operators to ensure that services are supported in rural areas. Smart ticketing, promotions and real time information have a major role to play in making public transport more attractive.
5.193 The railway network connects a number of settlements in the county with major centres in the Tyne and Wear and Tees Valley conurbations but rail as a mode only accounts for 6% of the total public transport journeys in the county. Rail is still vital for the economy though and services on the East Coast Mainline (ECML) link Edinburgh and London, stopping in Durham City and Chester-le-Street and is therefore a major asset forCounty Durham.
5.194 There are a number of opportunities for improving the rail network in the county including the reinstatement of the Leamside line. This is a major opportunity to improve rail services and cross boundary links into the major conurbations north and south of the county. It runs for 34 km from Tursdale Junction near Ferryhill to Pelaw in Gateshead via the east side of Durham City and to the east of Washington. The line was 'mothballed' in 1992. However, since that time, rail patronage has accelerated beyond forecasts and there is now growing momentum from businesses, key government transport agencies, politicians and local authorities to re-open the Leamside Line in order to facilitate HS2 and Northern Powerhouse Rail (NPR).
70 http://www.durham.gov.uk/media/8367/Rights-of-Way-Improvement-Plan/pdf/RightsOfWayImprovementPlan.pdf
County Durham Plan Preferred Options 127 County Durham Plan Preferred Options
5.195 There is evidence that both the ECML(71) and parts of the A1(M), particularly the Gateshead Western Bypass, are running at or above capacity. The reinstatement of the Leamside Line would provide additional capacity and relieve the existing two track railway between Darlington and Newcastle. A re-opened Leamside Line would help deliver a more regular service from Chester-le-Street and Durham City to York and Newcastle on the ECML as well as making it HS2 ready. On a newly created Leamside Line, new services and stations could be provided for passengers and additional capacity would be created for more freight to be transported in and out of the county without delaying trains on the ECML.
5.196 A new station at Horden (Peterlee) will improve access for passengers on the Durham Coast Line. It will connect areas of high population with areas of employment (such as the Tees Valley and Tyne and Wear conurbations) as well as making East Durham more attractive for inward investment. A funding package for the new station has now been established and detailed site studies and consultation are being undertaken as part of delivering the proposed station.
5.197 Although not included in the Plan there is also potential the Tyne and Wear Metro could extend into County Durham in the longer term with an extension. The Metro and Local Rail Strategy (72) expresses an interest in extending the service southwards on the Durham Coast Line, to Seaham and to the new station at Horden Sea View. The extension would be dependent on the electrification of the Durham Coast Line and compatibility with existing passenger and freight services. The Strategy also suggests possible Metro or Local Rail connections to Chester-le-Street and Durham City.
Freight
5.198 The ability of business to transport goods and raw materials is essential to the efficient functioning of the economy. The council will support the efficient growth of road freight by allocating manufacturing, storage and retail premises in the right locations and via its role on the North East Freight Partnership.
5.199 There are currently no inter-modal freight terminals or major rail freight generators in the county. The North East is the only region in the UK that is a net exporter of manufacturing goods while ports such as Teesport and Port of Tyne have grown significantly. It is important that the county capitalises on this growth in freight and the opportunity that it presents to improve the distribution network. There may be opportunities at Newton Aycliffe (Forrest Park) and Tursdale/Bowburn (adjacent to Integra 61) to provide sites for inland rail freight interchanges that would potentially serve the wider North East.
Policy 23 - Delivering Sustainable Transport
Policy 23
Delivering Sustainable Transport
The transport implications of development must be addressed as part of any planning application, where relevant this could include through Transport Assessments, Transport Statements and Travel Plans. All development(73) shall deliver sustainable transport by:
71 ECML Capacity Review December 2010. 72 http://www.nexus.org.uk/sites/default/files/Metro%20Futures%20brochure.pdf 73 Mineral extraction, waste management and householder extensions excluded.
128 County Durham Plan Preferred Options County Durham Plan Preferred Options
a. Delivering, accommodating and facilitating investment in sustainable modes of transport in the following order of priority: walking, cycling, bus and rail transport, car sharing and alternative fuel vehicles;
b. Providing appropriate, well designed, permeable and direct routes for walking, cycling and bus access, so that new developments clearly link to existing services and facilities together with existing routes for the convenience of all users;
c. Ensuring that any vehicular traffic generated by new development following the implementation of sustainable transport measures can be safely accommodated on the local and strategic highway network and does not cause unacceptable congestion or that congestion can be overcome by appropriate transport improvements; and
d. Ensuring the creation of new or improvements to existing routes and facilities do not cause unacceptable harm to the natural, built or historic environment.
All development should have regard to the policies set out in the County Durham Cycling Delivery Plan and where possible should contribute to the development of the strategic cycling network and deliver new cycling infrastructure. Any new routes should not have an unacceptable adverse impact on environmental or heritage assets.
Proposals for new development should comply with the council's Parking and Accessibility Standards and accommodate current and future demand for low emission vehicles.
5.200 The council is committed to delivering a high quality integrated and sustainable transport network which supports our aspirations for a strong economy, a vibrant tourism offer and improved quality of life for all of our residents including reducing air pollution and emissions of CO2. The county's dispersed settlement pattern does however create specific transport issues that need to be addressed. As the majority of its residents do not live, work, shop or spend recreational time all in one place, the location of housing, employment, education, health, retail and leisure facilities can therefore have a significant impact on patterns of travel and accessibility, particularly for those without a car. The provision of public transport is also sometimes difficult to plan for and is often reliant on subsidies, especially in rural parts of the county where it is recognised that there is a greater reliance on the private car.
5.201 The Plan seeks to minimise the distance and length of journeys, make best use of existing public transport and the highways network and deliver sustainable transport choices. As a result the majority of new residential, commercial and employment development is guided to settlements with more services and facilities.
Delivering Sustainable Transport
5.202 Whilst the planning system cannot directly change people's travel behaviour, it can help provide more sustainable transport choices. It is crucial therefore that the council, developers and other stakeholders deliver sustainable transport choices as development sites come forward via the planning system. This can often be done through Transport Assessments, Transport Statements and Travel Plans.
5.203 Transport Assessments should reflect the scale of the development and the extent of the transport implications of the proposal and should illustrate accessibility to the site by all modes of transport, and the likely modal split of journeys to and from the site. It should also give details of proposed measures to improve access by sustainable modes in order to reduce the need for car
County Durham Plan Preferred Options 129 County Durham Plan Preferred Options
parking which would otherwise be generated by the proposal and to mitigate transport impacts. Where appropriate, proximity and access to rail services and impact on nearby level crossings should also be included. For smaller schemes the transport aspects of the application can be set out in a Transport Statement.
5.204 Sustainable modes of travel such as walking, cycling, public transport, car sharing and alternative fuel vehicles can be provided through Travel Planning as well as good design. Travel Plans seek to change travel behaviour and recent evaluation work has shown that they can, with the right level of commitment from all partners, achieve significant value for money, with benefits outweighing costs by up to 13:1(74). Crucially, benefits include a reduction in congestion on both local and national roads, as well as a reduction in carbon emissions. Travel Plans should also include some 'softer' measures to encourage alternatives to car based travel, such as providing changing facilities, showers and cycle parking and storage in new office developments to encourage active travel.
5.205 Access to sustainable forms of transport must be integrated into the design of new developments. All future development should be planned to maximise opportunities for travelling according to the following priority: those with mobility issues or disabilities, walking, cycling, public transport, car sharing and alternative fuel vehicles. It is important that all users are considered when designing new transport infrastructure. Priority must go to those with mobility impairments, visual impairments and dementia. All transport journeys include an element of walking, whether its walking to a bus stop or even walking to a nearby car park. All new developments must include pedestrian and cycle routes which are direct, attractive and convenient and take priority over motor traffic. Walking and cycling routes provided through new developments must be permeable for users and allow greater accessibility to bus stops, existing routes and to nearby local attractors such as education and training facilities, employment sites and shops. Development sites which are designed as 'one way in, one way out' for pedestrians and cyclists will not be acceptable.
5.206 Cycling provides a major opportunity in the county to reduce reliance on the private car and a well designed, safer and greener network of cycle routes is more likely to succeed in changing behaviour and encourage people to be more active. We are therefore setting out our ambition for cycling in the forthcoming County Durham Cycling Delivery Plan (which will replace the current Delivery Plan which runs from 2012 to 2015(75)) which will identify a network of cycle routes that connect our key centres as priorities for investment.
5.207 When identifying new development sites the proximity and frequency of bus services is a key consideration. As part of planning applications developers should therefore consider the proximity and impact on local bus routes. Where possible, bus routes should penetrate new development sites through permeable routes and bus priority measures should be considered. Where appropriate, developers will be required to make a financial contribution to allow the council and bus operators to work together to improve bus provision for a particular site.
Mitigating Travel Impacts
5.208 Where the measures outlined in a Travel Plan or the design of a scheme are insufficient to fully mitigate the impact of increased vehicular trip generation on the local highway network, off site transport infrastructure improvements will be required. For example, a contribution could be made to improve the local bus service or to provide additional capacity on the highway network.
74 https://www.gov.uk/government/publications/creating-growth-cutting-carbon-making-sustainable-local-transport-happen 75 http://www.durham.gov.uk/media/3881/County-Durham-Cycling-Strategy-and-Action-Plan-2012-15/pdf/CountyDurhamCyclingStrategy2012-2015.pdf
130 County Durham Plan Preferred Options County Durham Plan Preferred Options
5.209 By working with bus and rail operators, the council will seek to encourage operators to provide transport that is as reliable, affordable and as simple to use as possible. We will also encourage operators to consider the impact of proposed development in their future investment plans through work on the Infrastructure Delivery Plan.
Parking and Accessibility Standards
5.210 All new developments must provide car and cycle parking and the relevant standards are set out in the council's Parking and Accessibility Standards(76). These do not seek to minimise car parking at origin but rather focus on limiting car parking supply at destination. They also provide minimum car parking standards that house builders must adhere to when building new housing. On employment sites, the council will still be enforcing maximum parking standards and cycle parking as a means of encouraging more sustainable travel behaviour.
Alternative Fuel Vehicles and Car Sharing
5.211 It is very important that we plan to enable the adoption of alternative fuel vehicles and also actively discourage the number and frequency of single occupancy car journeys through the provision of car sharing bays and charging infrastructure for electric vehicles. Electric vehicle charging infrastructure and car sharing bays will be will be required in accordance with the Parking and Accessibility Standards.
How will the Policy be monitored?
Indicator:
1. Appeals upheld contrary to this policy
Target:
1. None upheld at appeal
Question 31
This is our preferred policy. Do you have any comments?
76 https://durhamcc.objective.co.uk/portal/planning/cdpev/
County Durham Plan Preferred Options 131 County Durham Plan Preferred Options
Policy 24 - Durham City Sustainable Transport
Policy 24
Durham City Sustainable Transport
In order to reduce the dominance of car traffic, relieve existing highway network problems, facilitate growth, address air quality and improve the historic environment, the council proposes to deliver the following transport interventions in Durham City:
Demand Management
Encourage modal shift to more sustainable modes of transport by promoting and influencing changes in travel behaviour including:
Marketing and Promotion Programmes;
Employer Travel Plans;
School Travel Plans; and
Residential Travel Plans.
Re-allocation, Sharing and Creation of Highway Space
To displace through-traffic from Durham city centre, highway space will be re-allocated, shared and created to allow more priority for sustainable transport modes, including:
a. A new crossing of the River Wear through the provision of a Northern Relief Road linking the A691 and the A690, including an upgrade of Rotary Way;
b. Improvements to existing city centre transport infrastructure;
c. Walking and cycling improvements linking the University to the city centre;
d. Walking, cycling and public transport improvements linking Aykley Heads, Sniperley, Framwellgate Moor, Newton Hall and the city centre; and
e. Walking, cycling and public transport improvements linking Gilesgate, Dragonville, Carrville, Belmont and the city centre.
Following completion of the Northern Relief Road, the vehicular capacity of Milburngate Bridge will be reduced to provide more space to accommodate pedestrians, cyclists and public transport.
A167 Congestion
In order to reduce congestion on the western edge of the city around Nevilles Cross and the surrounding network and to facilitate development at Sniperley Park, land as shown on the policies map, is allocated for the construction of the Western Relief Road to the west of the A167 which will connect the A691 at Sniperley Park and Ride roundabout at its northern end with the B6302 Broom Lane at its southern end.
132 County Durham Plan Preferred Options County Durham Plan Preferred Options
5.212 In order to create a more sustainable transport network in Durham City there is a need for a positive strategy that manages the demand for car use by re-allocating, sharing and creating highway space for sustainable transport modes and correcting the faults in the current highway network. This policy aims to deliver this positive strategy and, in conjunction with the Durham City Air Quality Management Action Plan, seek to reduce air pollution in the city centre.
5.213 Rather than build a ring road in the 1960’s, Durham City’s solution to traffic growth was to create a 'through road' through the city centre. This link crosses the River Wear at Milburngate Bridge and now accommodates over 40,000 vehicles per day during the working week(77) and approximately 14 million in total for a year. Furthermore data from 2015(78) reveals that 33-36% of trips into the city are by vehicles that have no origin or destination in the city. This through traffic uses up limited highway space in the city and is a major factor in peak hour congestion.
5.214 The large volumes of slow moving and standing traffic make the city less attractive to visit and has an adverse impact on the environment of the city centre and the setting of the World Heritage Site. The amount of traffic also acts as a barrier to walking and cycling routes, discouraging sustainable travel. It also impacts on the health of local people, with heavy traffic creating local air quality and road safety issues. In particular Nitrogen Dioxide levels in the city centre have exceeded statutory limits and as a result an Air Quality Management Area (AQMA) has been designated.
Durham City Sustainable Transport Delivery Plan
5.215 The Draft Durham City Sustainable Transport Delivery Plan (DCSTDP) (79) sets out an ambitious and positive vision for the entire transport network across the city and has been developed in partnership with the city’s key stakeholders after a series of targeted events and consultations. The Draft DCSTDP sets out how modal shift can be practically achieved in the city by identifying packages of demand management and infrastructure improvements to reduce traffic. Its key proposals are also included in the Infrastructure Delivery Plan (IDP).
Demand Management
5.216 Demand management is about managing the demand for cars by influencing travel behaviour so residents travel in a more sustainable way. It can be delivered more quickly than infrastructure improvements that require greater levels of design and consultation. The Draft DCSTDP sets out four core activities relating to Demand Management:
Marketing and promotion programmes, providing comprehensive information about all sustainable travel options to encourage the uptake of sustainable modes;
Employer travel planning, where major employers set out how they will reduce car use and promote sustainable travel by their employees;
School travel planning, school children are particularly receptive to environmental messages and enthusiastic about sustainable and active travel modes;
Residential Travel Planning, particularly relating the new developments proposed in the Plan.
77 This figure was calculated from taking average daily flows on the Bridge in 2015. 78 Durham City Model Rebase - Review of 2015 Traffic Data & Key Trends Analysis, July 2016 79 http://durhamcc-consult.objective.co.uk/portal/planning
County Durham Plan Preferred Options 133 County Durham Plan Preferred Options
Re-allocation, Sharing and Creation of Highway Space
5.217 To ‘lock in’ the benefits of demand management measures, sustained programmes of investment in infrastructure are also needed. The Draft DCSDP finds that because of the shortage of highway space across the city, most transport improvements in the city relate to the re-allocation of the existing highway space or improving transport infrastructure.
5.218 By implementing the proposals set out in the policy a more sustainable transport network in the city can be achieved by re-allocating, sharing and creating space and improving sustainable transport infrastructure. It is important that all users are considered when designing new transport infrastructure. Priority must go to those with mobility impairments, visual impairments and dementia. Further detail on these projects is included in the Draft DCSTDP. It should also be noted that these individual schemes will require more detailed work such as feasibility studies, public and business consultation and the identification of funding, to be completed before they can be fully implemented.
Northern Relief Road
5.219 The Draft DCSTDP is clear that the long term transport strategy for the city centre is dependent on the ability to provide more space ‘for people’ travelling on foot, by bike and bus and where there are barriers to direct continuous routes, those barriers need to be removed. This is impossible to achieve without a new crossing of the River Wear which provides an alternative to Milburngate Bridge. A new crossing provides the opportunity to re-prioritise space on Milburngate Bridge bringing significant transport and environmental benefits to the city centre. Specifically, the DCSTDP recommends reducing the number of car lanes on the Bridge, making this route less attractive for through trips and creating more space for pedestrians, cyclists, bus users, those with disabilities and visitors. It will also create significant air quality benefits by removing unnecessary slow moving and standing traffic including heavy goods vehicles from the city addressing the principal cause of the increased Nitrogen Dioxide levels that resulted in the designation of the Air Quality Management Area. Displacing non-essential car trips away from the city centre will also encourage residents and visitors to use active travel and public transport when travelling into the city at peak hours, rather than taking the car into the city. In order to provide this crossing the Plan therefore proposes a Northern Relief Road (NRR).
5.220 The NRR is a longstanding proposal to improve the road network around Durham City. The principle was established in the 1979 County Durham Structure Plan which stated that a Northern link road 'will improve the link between Consett and the A1 (M) at Carrville and together with a Western Relief Road, reduce traffic congestion through the city centre'. The road was also safeguarded in the City of Durham Local Plan 2004.
5.221 The improvements resulting from the provision of a NRR will have major benefits for the cultural and historic environment of the city, making it a much more pleasant place to work, shop and visit and having direct benefits to the built fabric and public realm of the city including the World Heritage Site. The route of the NRR is located in the Green Belt. Although it will not be removed from the Green Belt, a Landscape Impact Assessment(80)has concluded that there is likely to be some impact on the openness of the Green Belt, it would therefore be considered inappropriate development in the Green Belt. However the council considers that for the reasons set out here and in the supporting evidence there is no alternative means of achieving the benefits resulting from removing traffic from the city centre and therefore exceptional circumstances have been demonstrated.
80 http://durhamcc-consult.objective.co.uk/portal/planning/cdpev
134 County Durham Plan Preferred Options County Durham Plan Preferred Options
5.222 The NRR would also improve links between North West County Durham and the A1, providing potential regeneration benefits for this area. As well as the strategic improvements in connectivity, the road will also have cross-city benefits improving the entire network and strengthening links between the housing, retail and employment centres on opposite sides of the river, such as between the Arnison Centre and Belmont Industrial Estate.
5.223 The proposed route of the NRR, shown on the policies map, runs from the A691 to the north of Lanchester Road Hospital to the A167 roughly on the line of Trouts Lane and Potterhouse Lane. The route then follows Rotary Way which will be upgraded to accommodate the additional traffic. The final section of the road then runs from Red House roundabout over the East Coast Mainline swinging south past Low Newton Farm, crossing the River Wear over a new bridge linking to a new roundabout junction on the east side of the A690. Within the corridor of interest for the NRR development will only be permitted if it does not prejudice the implementation of the road scheme. A full Environmental Impact Assessment will be required as part of a future planning application.
5.224 In order to bring the delivery of the NRR forward and realise its wide-ranging benefits, the council will be looking to secure local, regional and national transport funding through the preparation of a robust business case. However the part of the relief road between the A691 and the A167 will be provided by the developer as part of the Sniperley Park development. This could then be used as match funding for the remainder of the scheme.
A167 Congestion
5.225 Traffic modelling shows that the A167 is currently the most congested part of the transport network in both the AM and PM peaks. This was supported by a number of views expressed during the Issues and Options consultation . The traffic on the A167 creates a barrier for traffic when entering or leaving the city at peak times with significant bottlenecks especially where the A690 and A691 join the A167 in the west of the city at the Nevilles Cross Junction and Sniperley Roundabout. The modelling predicts that congestion on the network will increase both as a result of predicted national increases in traffic and more localised increases as a result of proposed new development. Therefore to relieve congestion and to enable development to the west and north of the city to come forward a solution is required.
5.226 In order to identify this solution the council therefore commissioned a feasibility study of possible highway improvements to the A167 corridor between Nevilles Cross and Sniperley roundabout. The objectives of the study were to try and improve journey times and reduce traffic congestion on the A167 in order to accommodate existing and future traffic.
5.227 The study found that two lanes could be provided in a southbound direction for the entire length between Sniperley roundabout and Nevilles Cross but, due to physical constraints, in a northbound direction only a number of smaller measures to increase capacity were possible. Once these improvements were modelled it showed a reduction in journey times in the AM peak along both the northbound and southbound carriageways. However, in the PM peak, whilst there is a reduction in the journey time on the southbound carriageway, there is a noticeable increase in the journey time on the northbound carriageway. This increase in journey time is due to northbound A167 traffic struggling to exit onto Sniperley roundabout, as traffic from the A691 travelling north-westbound gets an easier exit onto the roundabout. The modelled A167 improvements are estimated to around £6.9 million however the results of the modelling show no overall benefits to traffic movements on the A167.
Western Relief Road
5.228 Given this absence of an effective alternative and the existing and future congestion there is therefore a requirement for the provision of a Western Relief Road (WRR). The relief road will allow traffic from the A690 and A691 to avoid bottlenecks thus reducing congestion for all users. The most
County Durham Plan Preferred Options 135 County Durham Plan Preferred Options
significant reductions in traffic take place on the length of the A167 by-passed by the proposed Western Relief Road. The route of the WRR is also located in the Green Belt. Although it will not be removed from the Green Belt, a Landscape Impact Assessment(81) has concluded that there is likely to be some impact on the openness of the Green Belt, it would therefore be considered inappropriate development in the Green Belt. However the council considers that for the reasons set out here and in the supporting evidence there is no alternative means of addressing the congestion on the A167 and therefore exceptional circumstances have been demonstrated.
5.229 The route identified is the shortest possible to alleviate the traffic congestion, running parallel to the A167 and crossing the River Browney. Toll House Road will remain open as the proposed WRR will be sensitively bridged over it. Within the corridor of interest for the WRR, development will only be permitted if it does not prejudice the implementation of the road scheme.
5.230 Due to the significant benefits in reducing journey times that would result, it is anticipated that local, national or regional funding will be the principal means of delivering the WRR (and in fact this proposal has attracted funding previously). However as the new development at Sniperley Park will add to congestion on the A167 a contribution will also be required, via a Section 106 Obligation, from the developers of the site. This contribution will be calculated taking into account of viability and will be identified as match funding in a future business case for the scheme in order to increase the likelihood of securing additional funding. Progressing the road will be an early priority to ensure future development is not constrained as well as providing certainty to developers although the build out of Sniperley Park and other sites may need to be phased to reflect the completion of the WRR.
5.231 As with the NRR a full Environmental Impact Assessment for the WRR will be required as part of a future planning application.
Durham City Transport Modelling
5.232 In addition to the A167 modelling, strategic transport modelling across Durham City has been undertaken to assess the transport interventions required to accommodate projected traffic growth. The modelling included testing changing travel behaviour without any of the proposals included in the Plan. This showed that a reduction in car trips as a result of demand management techniques did not adequately mitigate the projected increase in traffic. The demand management measures were found to provide a platform, but not address the expected increase in traffic. The conclusion therefore was that demand management measures, improvements which encouraged walking, cycling and public transport together with the Western and Northern Relief Roads would be the most effective way to deal with projected increases in traffic and the new development proposed in the Plan.
5.233 The transport modelling indicates that the Western Relief Road would address existing congestion and future increases in traffic associated with the forecast growth in traffic and the impact of the new development proposed to the west and north of the city. The modelling also indicates that the delivery of the sustainable transport improvements set out in the DCSTDP together with both relief roads provides the most effective transport solution for the city. Due to the ‘wider area’ benefits to the strategic connectivity across Durham City (including to the AQMA) and other parts of the county, the council will develop a full business case to support the case for investment for the northern relief road and other transport interventions linked to delivering a sustainable transport network in Durham City.
81 http://durhamcc-consult.objective.co.uk/portal/planning/cdpev
136 County Durham Plan Preferred Options County Durham Plan Preferred Options
How will the Policy be monitored?
Indicator:
1. Percentage of employees in Durham City walking or cycling to work
2. Percentage of pupils walking, cycling or using public transport to school
3. Accessibility of Durham City Centre, Aykley Head Strategic Employment Site and retail district centres as employment centres (access within one hour and by 08:30 by public transport) from County Durham
4. Level of nitrogen dioxide at Durham Air Quality Management Area
5. Western Relief Road progress in accordance with project plan
6. Northern Relief Road progress in accordance with project plan
Target:
1. Increasing trend above the baseline figure
2. Increasing trend above the baseline figure
3. Increased accessibility by public transport to Durham City employment and retail centres from baseline figure
4. Reduction of levels nitrogen dioxide in AQMA year on year
5. On track in accordance with the project plan
6. On track in accordance with the project plan
Question 32
This is our preferred policy. Do you have any comments?
County Durham Plan Preferred Options 137 County Durham Plan Preferred Options
Policy 25 - Allocating and Safeguarding Transport Routes and Facilities
Policy 25
Allocating and Safeguarding Transport Routes and Facilities
The following transport routes and facilities, as shown on the policies map, are allocated:
a. Sherburn Retail Link Road; and
b. Horden Rail Station (Peterlee).
The following transport routes and facilities, as shown on the policies map, are safeguarded:
c. The Leamside Line and associated infrastructure; and
d. Bowburn Industrial Estate Access Road.
Not shown on the policies map but safeguarded as part of this policy are the Cycling Super Routes and the Primary and Secondary Cycle Routes identified in the County Durham Cycling Delivery Plan.
Development that would prevent the future development of the allocated and safeguarded transport routes and facilities will not be permitted. A corridor of interest for a possible future Barnard Castle Relief Road is also identified on the polices map.
Sherburn Retail Link Road
5.234 Sherburn Retail Link Road will provide a link road from Sherburn Retail Park through Dragonville Industrial Estate to the north of Damson Lane. It will help the regeneration of the Sherburn Road/Dragonville area of Durham City and help relieve congestion on the east side of Durham City. Much of the funding for the Link Road is now in place and it will progress in the near future.
New Station at Horden (Peterlee)
5.235 A new station at Horden (Peterlee) will improve access for passengers on the Durham Coast Line. It will connect areas of high population with areas of employment (such as the Tees Valley and Tyne and Wear conurbations) as well as making East Durham more attractive for inward investment. It is expected that the newly constructed station will generate 71,000 trips per annum by 2024.
5.236 The council have now identified a preferred location, allocated in this Plan and shown on the policies map, and a funding package for the new station from the New Stations Fund, Local Growth Fund and Durham County Council is now also in place.
5.237 Due to the station's proximity to coastal Internationally Designated Wildlife sites it has been subject to Habitats Regulations Assessment. In order to avoid adverse effects on the integrity of these sites no access from the station to the coast will be provided and native plant species will be incorporated into the landscape design.
138 County Durham Plan Preferred Options County Durham Plan Preferred Options
The Leamside Line
5.238 The reinstatement of the Leamside Line and better rail links to Tyne and Wear received popular support from residents as part of the Issues and Options consultation. The Leamside Line is a major opportunity to improve rail services and cross boundary links into the major conurbations north and south of County Durham. It runs for 34 km from Tursdale Junction near Ferryhill to Pelaw in Gateshead via the east side of Durham City and to the east of Washington. The line was 'mothballed' in 1992 when the East Coast Mainline (ECML) was electrified and re-signalled as it was believed at that time that the ECML would be sufficient for forecasted demand. However since 1992, rail patronage has accelerated beyond forecasts and there is evidence that the ECML(82) Is now running at or above capacity. There is therefore a growing momentum from businesses (represented by the North East Local Enterprise Partnership), key government transport agencies, politicians and local authorities to re-open the Leamside Line.
5.239 The reinstatement of the Leamside Line would be a regionally important piece of transport infrastructure which would provide additional capacity and could provide a number of potential new stations for example at Ferryhill, Belmont Park and Ride and Fencehouses. It would also improve transport accessibility across the region and provide opportunities for modal switch, including reducing pressure on the A1(M) Gateshead Western Bypass, with the associated environmental benefits this would bring. It would also have the added benefit of providing extra capacity for more freight to be transported in and out of the county and could also help support a possible new rail freight interchange the Forrest Park employment site.
5.240 Since the last services were withdrawn the council has sought to preserve the corridor of the line but unfortunately the track has now been removed and the signalising and embankments have deteriorated to the point where the most recent estimated reinstatement costs are believed to be above £300 million(83). This is a major barrier to the reopening of the line. As a result we are safeguarding the route of the Leamside Line rather than allocating it as there is currently too much uncertainty over how the reopening will be funded.
5.241 In addition to ongoing work on Leamside, the council participates in the East Coast Mainline Authorities (ECMA) group to lobby for investment in the ECML corridor and contributes to work on HS2 to ensure the county retains an appropriate mix and level of service for the existing stations located on the ECML.
Bowburn Industrial Estate Access Road
5.242 The proposal to protect a corridor for a future Bowburn Industrial Estate Access Road has been accepted for a number of years. It has previously been suggested that such a road would serve both current and planned development in the area and potentially offer a modest reduction in the amount of traffic using the A177. It has also been suggested that this corridor should be promoted as an industrial access road however given the fact that such a route would only be attractive to a relatively modest proportion of traffic using the A177 and offers no time savings, a need for a new road cannot currently be established.
5.243 However the proposals at Integra 61 will bring forward significant new industrial and housing development. Some of the associated traffic generated from the development could potentially avoid using part the A177 through Bowburn if a highway connection were provided along the line of the previously protected corridor. As this development is built out the impact of the associated additional traffic will monitored and it maybe that at some point in the future an industrial estate access road will be required. In order to ensure that the option of providing this road remains the Plan will safeguard the proposed route on the policies map.
82 ECML Capacity Review December 2010. 83 A feasibility study would be needed to estimate up to date reinstatement costs.
County Durham Plan Preferred Options 139 County Durham Plan Preferred Options
Barnard Castle Relief Road
5.244 Some support for an eastern relief road for Barnard Castle was expressed in the responses to the consultation on the Issues and Options. As a result a corridor of interest has been identified within which a possible road would be located, connecting the A688 and A67 with Westwick Road thereby allowing vehicles to cross the River Tees using Abbey Bridge and then join the A66 eastbound. The relief road would help reduce the quantity of through traffic in Barnard Castle and in particular HGVs. The impact of the relief road on general traffic flows is predicted to be relatively modest however the proposed road could be used to divert HGVs travelling through the town in association with an appropriate Traffic Regulation Order, banning vehicles over 18 Tonne. Such a ban could help reduce potential damage to the historic fabric of the town as well as address public concerns regarding safety and amenity.
5.245 The delivery of the relief road would be dependent on securing funding from the Department for Transport (DfT) which would require a robust business case demonstrating a high benefit to cost ratio. Currently these benefits are usually measured by DfT and other funding sources in terms of reducing journey times and delivering economic benefits rather than heritage preservation factors. Therefore as a result of the projected traffic flows expected on the new road it would be difficult to secure funding for this scheme during the Plan period. Therefore, although the council recognises that there would be some benefits resulting from a relief road the uncertainty over how it would be funded means that we are unable to allocate or safeguard the route. However as the council believe there is some merit to the scheme we have identified a corridor of interest on the polices map. If the position was to change in the future then we would consider the relief road in a future review of the Plan.
Cycling Routes
5.246 The existing County Durham Cycling Strategy and Action Plan sets out the ambition of delivering a strategic cycling network within and between a number of our larger towns. Investing in Cycling Super Routes will be the priority for investment as these routes can be used for everyday trips such as work or shopping trips. A Cycling Network Planning process has been developed to enable better operational and strategic management of the network. In brief, this involves a comprehensive condition audit, assessment of usability and strategic network planning which will result in comprehensive network plans. Alongside this a route hierarchy has been developed which determines the priorities for investment and standards for construction. Cycling Super Routes will be of high quality and will be either off-road or a well-defined and protected on-road route. All routes may also provide tourism and leisure opportunities and should incorporate green infrastructure principles and offer ecological and biodiversity benefits wherever possible.
5.247 Cycling Super Routes will be connected to settlements and services by Primary and Secondary Routes. The strategic cycling network will be produced as part of ongoing work on a new County Durham Cycling Delivery Plan. In making decisions on planning applications regard should always be made to the most up to date strategic cycle network plan. A wide range of funding will be used to develop the entire cycling network including developer funding of routes on development sites and where necessary off site routes to link to the existing network. Where development abuts or encroaches upon a Cycling Super Route, Primary or Secondary Route then provision must be made within the planning application to improve, maintain and incorporate the existing route or to provide a new route through the site so that the development proposed does not prejudice the implementation of the strategic cycling network.
140 County Durham Plan Preferred Options County Durham Plan Preferred Options
Darlington Northern Relief Road
5.248 We are also aware of an emerging proposal for a new road to the north of Darlington linking the A167 junction on the A1(M) to the A66. This could have potential benefits to County Durham as a result of improved links to Teesport. Although the majority of this link will be located in Darlington Borough a small part of the route, specifically the link to the A1 junction, will be in County Durham. We will therefore continue to monitor progress and will safeguard the relevant part of the route in the Plan when more information is available.
How will the Policy be monitored?
Indicator:
1. Sherburn Retail Link Road progress in accordance with project plan
2. Horden Rail Station progress in accordance with project plan
3. Number of planning applications approved within the safeguarded areas and corridor of interest which would prevent development of the routes and facilities
Target:
1. In accordance with the project plan
2. In accordance with the project plan
3. No applications approved
Question 33
This is our preferred policy. Do you have any comments?
Policy 26 - Provision of Transport Infrastructure
Policy 26
Provision of Transport Infrastructure
New highway schemes and new transport infrastructure will be permitted where they:
a. Are necessary to improve the existing highway network and/or rail network;
b. Support economic growth;
c. Enhance connectivity either within the county or with other parts of the region;
County Durham Plan Preferred Options 141 County Durham Plan Preferred Options
d. Accommodate future development sites;
e. Minimise and mitigate any harmful impact upon the environment and the amenity of local communities including by incorporating Green Infrastructure; and
f. Make safe and proper provision for all users which prioritises the movement of pedestrians, cyclists and public transport.
5.249 Transport infrastructure improvements can be critical to the delivery of development. They can support economic growth, sustainable transport and regeneration, whilst helping to improve connectivity between the county and adjoining areas within the North East and beyond. Funding or developers contributions will be sought as appropriate to support the delivery of key transport infrastructure improvements. While all transport schemes will have to conform to other relevant Plan policies, new highway schemes and other transport infrastructure will have to specifically conform to the criteria of this policy.
5.250 The safe efficient and free flowing movement of vehicles and people across the entire highway network is crucial to achieving the council’s ambition of improving the economy as well as being essential in the move towards sustainable local communities. It is important that all users are considered when designing new transport infrastructure including those with mobility impairment, visual impairment, dementia and other forms of mental illness. Proposals for improvements to the highway network and other transport infrastructure will be supported, where it can be demonstrated to be necessary in the absence of suitable transport alternatives and where they are viable and increase economic prosperity. New roads must be justified in accordance with the criteria set out above and should be routed and/or designed in such a way that they are assimilated into their surroundings with minimum disturbance to the environment including the cultural heritage of an area.
How will the Policy be monitored?
Indicator:
1. Number of major transport infrastructure schemes identified in the Infrastructure Delivery Plan that have been approved and completed
Target:
1. No Target
Question 34
This is our preferred policy. Do you have any comments?
142 County Durham Plan Preferred Options County Durham Plan Preferred Options
Supporting high quality infrastructure
5.251 Infrastructure can take many forms:
Physical, such as roads, utilities and energy supply networks;
Social, such as community buildings, education, health facilities, sport and recreation and employment or training opportunities; and
Environmental, such as heritage assets, areas for wildlife and green infrastructure.
5.252 We have worked with statutory undertakers, utility companies and other agencies to identify the need for new infrastructure. If additional infrastructure is not delivered alongside new development, it can put pressure on existing facilities that may not have the ability or capacity to cope with the additional demand. This may have a detrimental impact on the existing population.
5.253 The provision of infrastructure is managed by a wide range of organisations, not just the council. The Plan, together with an Infrastructure Delivery Plan, will play a key role in securing private sector involvement in infrastructure delivery, and in aligning the programmes of the various providers.
Official Safeguarded Areas
5.254 Government guidance(84) requires that local plans recognise officially safeguarded areas to ensure that the operators of the sites are consulted on relevant planning applications. There are two officially safeguarded areas in proximity to County Durham.
5.255 Within Sunderland there is the Met Office Weather Radar station at High Moorsley. This radar site provides important observation information which is essential for producing weather warnings and forecasts for a large number of customers including local authorities, the Ministry of Defence, the Environment Agency, airports, emergency services and other maintainers of essential infrastructure (such as transport and service providers). Within a zone surrounding the site, certain planning applications such as pylon proposals within 10km; wind turbines within 20km and buildings and other structures of certain heights, the Secretary of State for Business Innovation and Skills acting through the Met Office must be consulted(85).
5.256 An official safeguarded area has also been established for Durham Tees Valley Airport which lies within both Darlington and Stockton-on-Tees local authority areas in Tees Valley. Within a 15km radius of the airport, land uses or tall structures which would prejudice air safety or the ability of the airport to maintain either its existing, or an acceptable increased level of activity, will not be permitted. This includes proposals within 13km of the airport which might increase the risk of collision between aircraft and birds.
84 The Town And Country Planning (Safeguarded Meteorological Sites)(England) Direction 2014 and the Town And Country Planning (Safeguarded Aerodromes, Technical Sites And Military Explosives Storage Areas) Direction 2002. 85 http://wwwpre.metoffice.gov.uk/learning/library/publications/safeguarding; see map:http://www.metoffice.gov.uk/binaries/content/assets/mohippo/pdf/migrated/mor_map.compressed.pdf
County Durham Plan Preferred Options 143 County Durham Plan Preferred Options
Policy 27 - Developer Contributions
Policy 27
Developer Contributions
New development will be approved where any mitigation necessary to make the development acceptable in planning terms is secured through appropriate planning conditions or planning obligations. Such mitigation will relate to the provision, and/or improvement, of physical, social and environmental infrastructure taking into account the nature of the proposal and identified local or strategic needs.
Planning Conditions
Developers will be required to adhere to specific, fair and reasonably practicable planning conditions as a means of mitigating any adverse effects resulting from a development.
Planning Obligations
Developers will be required to enter into Section 106 Agreements to secure the mitigation that is necessary for a development to proceed, directly related to the development and fairly and reasonably related in scale and kind to the development.
In order to ensure that the mitigation and any associated benefits of a scheme may be materialised and sustainable development achieved, review mechanisms and / or an overage payment clause may be built into Section 106 Agreements to ensure that contributions can be periodically reviewed to reflect any changes in circumstances or market conditions seeking to ensure that where market conditions have improved, the scheme can deliver all requirements in full.
5.257 It is important to ensure that development proposals contribute to improvements in infrastructure capacity to mitigate for the additional demands that new development creates. A planning obligation is a legal agreement between the planning authority, the applicant/developer and anyone else that has an interest in the land when planning permission is granted. By securing financial contributions, developers would help fund the infrastructure that is needed to make development acceptable and ensure that the development mitigates its impact upon existing infrastructure. To provide certainty, known infrastructure requirements and associated developer contributions will be set out at the pre-application stage and therefore early discussions are encouraged.
5.258 Where there are site specific infrastructure requirements, without which a development should not be granted planning permission, either this will be secured via a planning condition or through a planning obligation/Section 106 Agreement. These are negotiated on a site by site basis.
5.259 In the unlikely circumstance where the viability of a scheme is in question, the developer will be required to demonstrate that this is the case through a site-specific financial evaluation which will be made available in the interests of transparency, undertaken to the council's satisfaction at the earliest possible stage. Where a scheme is agreed to be unviable, we will review the timing or phasing of payments to assist the financial viability of the scheme. In such circumstances or when the planing application is likely to have a build out rate spanning more than two years, a review mechanism and/or an overage payment clause will be built into the Section 106 Agreement to ensure agreements can be periodically reviewed and updated to reflect any changes in circumstances or market conditions.
144 County Durham Plan Preferred Options County Durham Plan Preferred Options
5.260 There should be no instances where site specific infrastructure and mitigation cannot be secured because of viability concerns. However in these situations where the infrastructure is an essential prerequisite to enable the site to be developed, a scheme will be deemed unacceptable in planning terms.
Removal of Pooling Restrictions
5.261 Regulation 123 of the Community Infrastructure Levy (CIL) regulations prevents local authorities from using more than five section 106 planning obligations to fund a single infrastructure project. The pooling restriction incentivises local authorities to introduce CIL in order to collect a fixed contribution towards infrastructure from a large number of developments.
5.262 However, the Government is currently consulting on proposals to reform the current system including the removal of pooling restrictions in areas where authorities fall under a threshold based on the tenth percentile of average new build house prices (86), meaning CIL cannot be feasibly charged. Currently, County Durham falls within the tenth percentile and therefore would be unlikely to be able to sustain a CIL charge across many parts of the county.
Viability and Plan Making
5.263 Sustainable development requires careful attention to viability and costs in plan-making and decision taking. Draft Planning Practice Guidance (PPG) confirms that the role of viability assessments is primarily at the plan making stage. To ensure a viable and deliverable Plan, a Local Plan Viability Assessment (87) has tested notional sites across the highest, high, medium and low value areas. All development sites are different and as such will have different costs and values associated with their build. Both residential and commercial schemes have been tested including assumptions around infrastructure an policy requirements such as education, older persons, open space and water management.
How will the Policy be monitored?
Indicator:
1. Amount of money agreed through Section 106 Agreements
2. Amount of money received through Section 106 Agreements
3. Amount of money spent through Section 106 Agreements
4. Number of applications where required contributions have been waived.
Target:
1. No Target
2. No Target
3. No Target
4. No Target
86 Land Registry House Price Index 87 https://durhamcc.objective.co.uk/portal/planning/cdpev/
County Durham Plan Preferred Options 145 County Durham Plan Preferred Options
Question 35
This is our preferred policy. Do you have any comments?
Policy 28 - Green Infrastructure
Policy 28
Green Infrastructure
Development will be expected to maintain and protect, and where appropriate improve, the county’s green infrastructure network. Development proposals should incorporate appropriate Green Infrastructure (GI) that is integrated into the wider network, which maintains and improves biodiversity, landscape character, increases opportunities for healthy living and contributes to healthy ecosystems and climate change objectives.
Loss of provision
Development proposals will not be permitted that would result in the loss of open space or harm to green infrastructure assets unless the benefits of the development clearly outweigh the harm. Where valued open spaces or assets are affected, proposals must incorporate suitable mitigation and make appropriate provision of equivalent or greater value on site or within the locality. Where appropriate there will be engagement with the local community.
New provision
Development proposals should provide for new green infrastructure both within and, where appropriate, off site, having regard to priorities identified in the Strategic GI Framework. Proposals should take opportunities to contribute to existing green infrastructure projects in the locality including those identified in the Infrastructure Delivery Plan.
New green infrastructure will be required to be appropriate to its context and of robust and practical design, with provision for its long term management and maintenance secured. The council expects the delivery of new green space to make a contribution towards achieving the net gains in biodiversity and coherent ecological networks as required by the NPPF.
Proposals for new residential development will be required to meet the standards of open space provision set out in the Open Space Needs Assessment (OSNA). Where it is determined that on-site provision is not appropriate, the council will require financial contributions secured through planning obligations towards the provision of new open space, or the improvement of existing open space elsewhere in the locality.
Public Rights of Way
Development will be expected to maintain or improve the permeability of the built environment and access to the countryside for pedestrians, cyclists and horse riders. Proposals that would result in the loss of, or deterioration in the quality of, existing Public Rights of Way (PROWs) will not be permitted unless equivalent alternative provision of a suitable standard is made. Where diversions are required, new routes should be direct, convenient and attractive, and must not have a detrimental impact on environmental or heritage assets.
146 County Durham Plan Preferred Options County Durham Plan Preferred Options
5.264 Green Infrastructure (GI) is the network of green spaces and corridors that exist within and between cities, towns and villages. As well as public open space, it includes wildlife sites, river corridors, coastlines, mountains, moorland, woodland and agricultural land and is integral to the health and quality of life of sustainable communities.
5.265 GI fulfils a number of important functions including; access, recreation and sport; agriculture; woodland and forestry; biodiversity and geodiversity; economic development through improving the image of towns and cities, making them more attractive places to live, work and invest; health and wellbeing; landscape and townscape; flood control and drainage; and climate change mitigation.
5.266 The NPPF requires local plans to set out a strategic approach to planning for the creation, protection, enhancement, and management of networks of biodiversity and to plan for biodiversity at a landscape scale across local authority boundaries. The council has produced a Strategic GI Framework which sets out the principles and recommendations for GI in the county, and the conservation and enhancement of the existing network. New housing development will be required to include the provision of sufficient green infrastructure to meet the principles set out within the GI framework.
5.267 In determining whether it is appropriate for open space to be provided on or offsite, the council will have regard to the OSNA which clarifies (88) the types of provision considered to be appropriate to the scale of the development. The use of green walls and green roofs will be encouraged where they are considered to be appropriate.
5.268 Where all or part of the required GI is to be secured by way of a planning obligation, the costs payable will be calculated by determining the likely cost to the council of providing the required area of open space, less the amount provided in kind by the developer.
5.269 Where new open spaces are provided, the council will expect the developer to maintain them for a minimum of 12 months following practical completion (89). Following this, the council may be prepared to adopt the land, providing it meets the required standard. A commuted sum for maintenance, calculated on the basis of typical maintenance costs per square metre for a 15 year period, will be payable. Alternatively, the developer may utilise a management company.
5.270 It is recognised that not all uses of green space are compatible. In particular, some semi-natural sites containing protected habitats or species may be adversely affected by recreational use. Where such sites exist, it may be desirable to ensure that suitable alternative green spaces exist in the vicinity, which can absorb likely recreational pressure. This is particularly relevant with respect to the Durham Coast, where increased recreational use of green space forms a crucial part of the mitigation strategy for the council’s Habitat Regulations Assessment.
5.271 In assessing whether a site is surplus to local requirements, and to inform whether the compensatory amount of open space is of an equivalent or better quality, regard should be had to any relevant assessments, strategies and action plans (including the OSNA, Strategic GI Framework, Playing Pitch Strategy and associated Action Plans) and any changes in circumstances that have taken place since they were produced, or which would take place as a consequence of the development.
88 Table 19 of the Open Space Needs Assessment (OSNA) set out the requirement for open space, sport and recreation facilities within housing developments. 89 This is dependent on the nature of the habitats created and establishment period required in order to determine success of creation
County Durham Plan Preferred Options 147 County Durham Plan Preferred Options
How will the Policy be monitored?
Indicator:
1. Amount of new Green Infrastructure lost on approved sites
2. Loss of OSNA sites by Hectare and number of sites where there is no compensation or mitigation provided
Target:
1. No Target
2. Zero
Question 36
This is our preferred policy. Do you have any comments?
Policy 29 - Utilities, Telecommunications and Other Broadcast Infrastructure
Policy 29
Utilities, Telecommunications and Other Broadcast Infrastructure
Proposals will be permitted for new or extension to existing energy generation(90), utility transmission facilities, telecommunication masts or other broadcast and broadband equipment which facilitate the electronic transfer of data where:
1. It can be demonstrated that the scheme will not cause significant adverse impacts or that its benefits outweigh any adverse negative effects;
2. It is located at an existing mast or transmission site, where it is technically and operationally feasible and does not result in visual clutter. Where a new site is required applicants must demonstrate to the council's satisfaction that the use of existing sites in the area have been fully explored and are not feasible. Equipment must be sympathetically designed and camouflaged and not result in visual clutter; and
3. Where applicable, it does not cause significant or irreparable interference with other electrical equipment, air traffic services or other instrumentation operated in the national interest.
90 Other than renewable energy generation which is covered in Policy 35 (Renewable and Low Carbon Energy).
148 County Durham Plan Preferred Options County Durham Plan Preferred Options
The council will require developers to ensure that all new build developments or major renovations (both residential and commercial) are served by a high speed and reliable broadband connection. This will need to be directly accessed from the nearest exchange and threaded through resistant tubing to enable easy access to the cable for future repair, replacement and upgrading.
5.272 As well as taking into account existing utilities infrastructure such as sub-stations, overhead power lines, underground cables and gas pipelines which run across or adjacent to development sites, the provision of new infrastructure is required to enable the growth proposed in the Plan. Whilst generally utilities infrastructure is covered by permitted development rights some of these rights are time limited or below specified thresholds. Developments will therefore need to be determined on a case by case basis. We will continue to work in close partnership with energy providers to ensure minimum disruption to existing networks as well as enabling the phasing and delivery of appropriate utility infrastructure to support proposed development.
5.273 Changes in demand patterns or the introduction of new technology, such as the increased use of electric cars, can also require new infrastructure or the reinforcement or expansion of existing infrastructure. As the UK's energy infrastructure is updated there will be a requirement for an expansion of existing infrastructure such as overhead power lines, underground cables, extending substations, new gas pipelines and associated installations and also new forms of infrastructure including smaller scale distributed generation, battery storage and gas storage sites.
5.274 This policy does not cover renewable, low carbon, or waste based energy generation, which are covered by other policies in the Plan. New power stations over 50MW are classed as nationally significant infrastructure projects (NSIPs) and as such the Planning Inspectorate will examine applications and make recommendations to the Government. This policy covers power stations of 10 MW or more but less than 50MW, which use oil or natural gas, they will also require energy policy clearance under section 14(1) of the Energy Act 1976(91). In relation to planning and amenity aspects of high voltage electricity transmission lines and substations, additional guidance can be found in 'Development Near Overhead Lines' produced by National Grid(92).
5.275 Modern telecommunications and access to high speed, reliable broadband are now considered essential to growing a sustainable economic future, vital for education and individual lifestyles, as well as an increasingly central part to community cohesion and resilience. It is particularly important in rural areas where it can benefit businesses, tourism and enable communities to access services and facilities online, but where commercial providers are less willing to provide access.
5.276 The council is working in partnership with the UK Government to help improve broadband speeds for residents and businesses through several initiatives. The importance of Next Generation Access capable of delivering speeds of 24Mbps or greater is recognised, and the council is committed to extending fibre coverage to as many businesses, homes and communities in County Durham as possible with the funding available.
5.277 Direct fibre access is the most future-proof option and the council will require developers to include this provision to new build or major site renovations. Exceptions may be made to this however applicants must show, through consultation with broadband infrastructure providers, that direct fibre access would not be possible, appropriate, practical or economically viable. Evidence of this must be clearly demonstrated to the Council to show that this is the case.
91 More information is available here: https://infrastructure.planninginspectorate.gov.uk/ 92 https://www.nationalgrid.com/NR/rdonlyres/4DD2D3FF-B973-4F3C-A8C3-CDB640526660/45082/Developmentnearoverheadlines.pdf
County Durham Plan Preferred Options 149 County Durham Plan Preferred Options
5.278 The Government has carried out a series of consultations to stimulate private sector investment to achieve a transformation in broadband in the UK, and in 2017 the Digital Economy Act was brought into effect. This Act introduces a new Universal Service Obligation (USO) that will give people the legal right to request broadband download speeds of at least 10Mbps. The obligation will be initiated by 2020 and will put broadband on a more equal footing to other essential services such as electricity and water supply. Whilst the USO is less than half of the current UK Government superfast speed target of 24Mbps, it provides a safety-net minimum, designed to ensure that those properties that cannot access superfast broadband infrastructure, are still able to access broadband at a minimum speed that ensures they are not socially or economically left behind.
5.279 The Act also removes the time limit for broadband street cabinets, new poles and lines to be installed under permitted development rights in any location other than a Sites of Special Scientific Interest (SSSI) without the need for prior approval from local planning authorities, as long as the development is completed on or before 30th May 2018. Further guidance on permitted development rights can also be found in Planning Practice Guidance (PPG). (93)
5.280 In accordance with the National Planning Policy Framework (NPPF), all new infrastructure installations should, where possible, minimise the number of masts and new sites required and be sympathetically designed and camouflaged where appropriate. In this context the phrase ‘visual clutter’ is used to describe the visual impact created by bringing together a number of potentially unrelated structures in one place resulting in an overwhelming and unsightly cluster. Therefore the cumulative impact of additional infrastructure being added to an existing site will need to be taken into account as part of the application process.
5.281 Where new equipment is proposed, which cannot be located on an existing site due to technical and operational constraints, operators will be required to provide evidence that they have explored the possibility of alternative existing sites. This is of particular importance where the site falls within an area of sensitivity, where it would normally be refused because of siting or appearance considerations. Green infrastructure can also be a valuable tool in helping to mitigate the potential adverse visual and environmental impacts of new infrastructure development and should be considered as part of the application process. This could include landscaping with plants or trees to soften the visual impact of new infrastructure or new habitat creation where trees or vegetation have been disturbed during the installation phase.
5.282 The NPPF also makes clear that local planning authorities must determine applications on planning grounds and should not seek to prevent competition between different operators, question the need for the telecommunications system, or determine health safeguards if the proposal meets International Commission guidelines for public exposure(94).
5.283 The Code of Best Practice on Mobile Network Development in England (2013) has been drawn up in partnership between Arqiva, Heritage England, the Mobile Operators Association, National Parks England, MHCLG, DCMS, DEFRA and the Planning Officers Society(95). The Code applies to all forms of wireless development, but is most relevant to proposals for new masts or base stations and significant additions or extensions to existing sites. There is also a cabinet siting and pole siting Code of Practice for Fixed Line Code Operators(96) and an ongoing review of how the planning system in England can support the delivery of mobile connectivity and the roll out of the Government's 5G Strategy . (97). One of the aims of the Future Telecoms Infrastructure Review, is to assess whether
93 Specifically Paragraphs 070 reference ID: 13-070-20140306 to 073 Reference ID:13-073-20140306. 94 http://www.icnirp.de/ 95 https://www.gov.uk/government/publications/code-of-best-practice-on-mobile-phone-network-development 96 https://www.gov.uk/government/uploads/system/uploads/attachment_data/file/205744/Final_Cabinet_and_Pole_Siting_COP_Issue_1_2_.pdf 97 https://assets.publishing.service.gov.uk/government/uploads/system/uploads/attachment_data/file/577906/CONNECTED_FUTURE_ACCESSIBLE.pdf
150 County Durham Plan Preferred Options County Durham Plan Preferred Options
any further policy interventions may be needed to create the conditions for long term investment in world-class digital connectivity . The outcome of this review will need to be taken into account in future plan and decision making.
How will the Policy be monitored?
Indicator:
1. Appeals upheld contrary to this policy
Target:
1. None upheld at appeal
Question 37
This is our preferred policy. Do you have any comments?
Policy 30 - Safeguarded Areas
Policy 30
Safeguarded Areas
Within safeguarded areas as shown on the policies map(98), development will be subject to consultation with the relevant authority and will be permitted:
a. Within the defined consultation zones of the Major Hazard Sites and Major Hazard Pipelines, where it can be demonstrated that it would not prejudice current or future public safety;
b. Within the Durham Tees Valley and Newcastle International Aerodrome Safeguarding Areas where it can be demonstrated that it would not prejudice the safety of air traffic and air traffic services; and
c. Within the defined safeguarding area around the High Moorsely Meteorological Office radar site where it can be demonstrated that there will be no unacceptable adverse impact upon the operation of the site.
Within the extent of Fishburn Airfield, and the Shotton Airfield and Peterlee Parachute Drop Zone Safeguarding Areas (including parachute landing areas), proposals for development which could adversely impact upon the operation or lead to the closure of these facilities will be carefully considered. Proposals will be permitted where it can be demonstrated that:
98 Maps D and E in the policies base document.
County Durham Plan Preferred Options 151 County Durham Plan Preferred Options
d. They would not prejudice the safety of air traffic and air traffic services; and
e. They would not have an unacceptable adverse impact upon the operation of the Peterlee Drop Zone unless the benefits of the proposed development clearly outweigh the resulting harm.
5.284 Government guidance(99) requires that we consult the Health and Safety Executive (HSE), Durham Tees Valley Airport, Newcastle International Airport and the Secretary of State for Business Innovation and Skills, acting through the Meteorological Office, on planning applications within officially safeguarded areas and their surrounding defined consultation zones. None of these safeguarded areas are the responsibility or the proposal of the local planning authority but need to be taken into account in the consideration of planning applications. Depending upon the specific safeguarded area, within these areas there may be be restrictions on the location, the height of structures and buildings, the detailed design of buildings or on development which might create a bird strike hazard.
5.285 The HSE is a statutory consultee for planning applications around major hazard sites and major accident hazard pipelines. The HSE has set a consultation distance around major hazard sites and major accident hazard pipelines after assessing the risks and likely effects of major accidents at the major hazard. Within County Durham major hazards comprise a wide range of chemical process sites, fuel and chemical storage sites, and pipelines including the High Pressure Gas Pipeline between Bishop Auckland/Sutton Howgrave and the Wilton-Grangemouth Ethylene Pipeline. The HSE will be consulted on certain developments which lie within the consultation distance of a major hazard site or a major accident hazard pipeline(100).
5.286 The Civil Aviation Authority has identified both Newcastle International Airport and the Durham Tees Valley Airport as officially safeguarded aerodromes. The Newcastle Airport Safeguarding Area extends into the far north of the county for general development and in addition 30 km from the aerodrome for windfarms. Similarly the Durham Tees Valley Airport Safeguarding Areas extend into south east Durham and require consideration of bird strike 13km from the aerodrome and 15km for general development. The policies map(101) also identifies Fishburn Airfield Safeguarding Area. Within these safeguarded zones we will consult the individual airport operator on certain development proposals. Development proposals which would prejudice the air safety of these airports and airfields will not be permitted within the safeguarding zones. This includes proposals which might increase the risk of collision between aircraft and birds due to the creation of a bird strike hazard.
5.287 An officially safeguarded area has been designated for the Meteorological Office radar site at High Moorsley in Sunderland. The safeguarded area extends into the County covering large areas of Central, North and South Durham. The radar site provides important observation information which is essential for producing weather warnings and forecasts for a large number of customers including
99 The Town and Country Planning (Safeguarded Aerodromes, Technical sites and Military Explosives Storage Areas) Direction 2002 and Town & Country Planning (Safeguarded Meteorological Sites) (England) Direction 2014. 100 Within the identified consultation distance of major hazard installations / complexes and pipelines, HSE should only be consulted for developments involving: residential accommodation; more than 250 square metres of retail floor space; more than 500 square metres of office floor space; more than 750 square metres of floor space to be used for an industrial process; transport links (railways, major roads, etc.); a material increase in the number of persons working within, or visiting, a location within the consultation distance of a major hazard site. In addition the HSE should also be consulted on: proposed development involving the siting of new establishments where hazardous substances may be present; or modifications to existing establishments which could have significant repercussions on major accident hazards; or proposed development that is in the vicinity of existing hazardous installations and pipelines where the siting is such as to increase the risk or consequences of a major accident 101 Maps D and E in the policies base document.
152 County Durham Plan Preferred Options County Durham Plan Preferred Options
Local Authorities, the Ministry of Defence, the Environment Agency, Airports, emergency services and other maintainers of essential infrastructure (such as transport and service providers). Within the consultation zone we will consult the Meteorological Office on certain planning applications(102).
5.288 The policies map also identifies the Parachute Landing Areas (PLA), Overshoots and designated Drop Zone (DZ) associated with Shotton Airfield and the Peterlee Parachute Centre. The Peterlee DZ has operated continuously since 1987 and is now the only designated site for parachuting in the North East serving County Durham, Northumberland, Tyne and Wear, the Tees Valley, North Yorkshire and South East Scotland. It is also listed by Sport England as a Significant Area For Sport (SASP)(103).
How will the Policy be monitored?
Indicator:
1. Appeals upheld contrary to this policy
Target:
1. None upheld at appeal
Question 38
This is our preferred policy. Do you have any comments?
102 The Meteorological Office will be consulted on all pylon proposals over 10 metres in height within 10km of the radar site; any development involving wind turbines and buildings, structures and works exceeding between 10.7 metres and 91.4 metres above ground level (depending on location and topography) within 20km of the radar site. 103 In order to avoid restrictions to parachuting activity these criteria include a PLA largely free of minor hazards (hedges, fences, ditches), overshoots largely free of Major Hazards (large hangars, buildings, small wind turbines, woods), no electric power lines within 800m of the PLA/DZ, no special hazards (open deep water/rivers, electric power lines, large wind turbines) within 1200m of the PLA/DZ centre, and no aerial hazards (any obstacle in excess of 90m AGL) within 2400m of the PLA/DZ centre and no windfarms within the designated DZ (minimum 2.4km from the centre). The CAA also lay down criteria in CAP 793 that there should be no obstacles exceeding a height of 150ft (45m) above the mean elevation of the runway within 2000m of the centre of the runway.
County Durham Plan Preferred Options 153 County Durham Plan Preferred Options
Requiring good design
5.289 The design quality of new development in the county has varied significantly. We are committed to ensuring that in future it will be of the highest standards in terms of architecture, urban design, sustainability and innovation. This ensures that new development enhances and complements existing high quality areas and raises the design standards and quality of areas in need of regeneration. New development should provide local people with civic pride, make them feel safe and secure and help improve the overall image of the county and reflect local distinctiveness.
5.290 Development needs to be carefully planned to ensure important features and characteristics are protected and enhanced. The layout and design of new developments must be based on a thorough understanding of a site and its wider context. This requires careful consideration of site layout, including how the development integrates into its setting in terms of: building layouts; built form; height; mass; scale; building line; plot size; elevational treatment; materials; streetscape and rooflines. The layout, form and mix of development should also support walking, cycling and public transport provision.
Policy 31 - Sustainable Design in the Built Environment
Policy 31
Sustainable Design in the Built Environment
All development proposals will be required to:
a. Contribute positively to an area’s character, identity, townscape and landscape features, helping to create and reinforce locally distinctive and sustainable communities;
b. Create buildings and spaces that are adaptable to changing social, technological, economic and environmental conditions; and
c. Achieve the highest possible design standards, schemes(104) will be assessed against the Building for Life Supplementary Planning Document. Where, as a result of the process improvements are required, the scheme will only be supported where these are addressed to the satisfaction of the council.
Places and Spaces
Major development proposals and those which impact on the public realm should:
d. Create a clearly-defined, easily navigable and accessible layout, demonstrating an appropriate response to the local context to ensure:
1. The public realm, including new roads and other rights of way, are attractively designed and safe taking into account the lifetime needs of residents; and
2. Convenient access for all users whilst prioritising the needs of pedestrians, cyclists, public transport users, people with a range of disabilities, and, emergency and service vehicles.
104 The BfL review process covers all major residential-led schemes of 50+ units (or 1.5 hectares+), as well as any smaller schemes in particularly sensitive locations
154 County Durham Plan Preferred Options County Durham Plan Preferred Options
e. Create places, routes, intersections and points of reference which clearly define public and private spaces. Development will incorporate defensible space and maximise natural surveillance opportunities where appropriate.
Buildings and Density
Development proposals involving new buildings should:
f. For residential schemes be built to at least 30 dwellings per hectare (dph) in and around town centres and locations where there is good access to facilities and frequent public transport services. Lower densities may be acceptable in other locations or where it is necessary to ensure development is compatible with its surroundings or to secure particular house types to meet local needs.
Extensions and Alterations
Proposals for alterations and extensions to residential property, and development associated with the incidental enjoyment of a dwelling, should:
g. Ensure the development is sympathetic to the existing building(s), character and appearance of the area in terms of design, scale, layout, roof design and materials; and
h. Not have a significant adverse impact upon the amenity or privacy of adjoining properties.
Signage, Adverts, Street Furniture and Public Art
Proposals should:
i. Ensure street furniture, public art, adverts and signage is appropriate and sympathetic to all users and the local setting in terms of scale, design, lighting and materials.
j. Ensure adverts and signage are not:
1. Detrimental to visual amenity or highway safety; and
2. Sited in inappropriate locations.
5.291 This policy addresses all new development in the built environment including new housing and other new buildings, as well as extensions, alterations and changes of use of existing buildings. It aims to ensure that development achieves high standards of sustainable design.
Design
5.292 New development will be expected to be of a high design quality that respects and responds to the local context and distinctiveness of the area. The layout and design of new developments must be based on a thorough understanding of the site itself and its wider context including topography, building layouts, built form, height, mass, scale, plot size etc. It should also seek to maximise the benefits of the site's characteristics and ensure valuable features and characteristics are protected and enhanced. Development should seek to incorporate design solutions for buildings and spaces
County Durham Plan Preferred Options 155 County Durham Plan Preferred Options
that optimise solar gain and adapt to climate change impacts, including green/brown roofs, green Infrastructure planting and brise soleil, for example. The retention of established planting and trees in particular can visually enhance a development, as can ensuring an appropriate relationship with the wider landscape, both visually and in terms of activity and through the creation of wildlife corridors.
5.293 Creating an accessible and permeable public realm through connecting places and spaces, will help to ensure that many daily needs can be met by the use of walking, cycling or public transport. Opportunities should be taken to create or reinforce a logical and legible hierarchy of routes, intersections and public spaces, the design of which will vary dependent upon movement, activities and uses supported. The built form should be used to assist in this regard, with the inclusion of focal buildings and features where appropriate to act as visual points of reference.
5.294 A high quality built environment should consider the amenity of both existing and future development and consideration should be given to matters of privacy, outlook, natural lighting, ventilation, as well as local climatic conditions. Indoor and outdoor space, including private and communal gardens, should be provided as appropriate in order to support a reduction in health inequality and the promotion of healthy lifestyles. Spaces should be designed to be accessible to all users, including people with sensory and cognitive issues as well as reduced physical mobility. The design and layout of open and amenity spaces should be flexible and explore opportunities for community food growing space where appropriate to support the creation of healthy communities and improve wellbeing.
5.295 Density is linked with design and it is essential that imaginative design solutions are encouraged to achieve appropriate density levels. Developments should make efficient use of land and resources by achieving higher densities (i.e. 30 plus dwellings per hectare) in locations with good access to public transport and facilities. Lower densities may be more appropriate in response to the prevailing existing character of a site, in smaller settlements or to provide a range and choice of housing. The density of development should be a product of a robust site assessment which responds positively to the county's exceptional environmental quality.
5.296 There are many occasions when alterations and extensions are proposed to buildings, both domestic and business premises. Extensions and/or alterations that are sympathetically designed, do not detract from the character of the area and have no adverse effect on the amenity of neighbours in accordance with Policy 33 (Amenity and Pollution) will be approved.
5.297 Street furniture and materials within the public realm should be robust and hard wearing to ensure their longevity. Wherever possible materials and equipment should be selected from standard palettes to ensure cost effectiveness and ease of replacement and maintenance. As a general rule the public realm should be free from clutter and feature surfaces that are level and avoid high reflectivity and contrasting patterns as these can present difficulties for some users, including the elderly, those with dementia and others with similar conditions.
5.298 High quality development should be achieved through a robust and collaborative design process from inception to completion on the ground. The design process should go beyond the development construction phase and should also ensure suitable management arrangements and maintenance regimes are put in place. The Design and Access Statement that accompanies planning applications should demonstrate how development proposals contribute to the appropriate criteria set out within this policy and within established best practice guidance (e.g. Building for Life 12, By Design, Urban Design Compendium, Manual for Streets, Secured by Design, Neighbourhoods for Life, etc.).
156 County Durham Plan Preferred Options County Durham Plan Preferred Options
Building for Life
5.299 Building for Life 12 (BfL) (105) is a Government endorsed industry standard for well-designed homes and neighbourhoods. BfL seeks to address the concerns of local communities by setting standards which developers have to meet in order to achieve planning approval. BfL incorporates a scoring system which is used to assess the performance of a scheme against a list of 12 questions. These refer to topics such as car parking, design of streets, legibility, local character and access to facilities and public transport amongst others.
5.300 The council has incorporated the BfL Standards into a design review process which has been operating since 2016. This process has now been formalised within the council's draft Building for Life Supplementary Planning Document which is out for consultation alongside the Plan. Applicants will need to provide evidence of how their development performs against each question to enable a conversation about the design of new schemes between the applicant and the local planning authority.
5.301 The process uses the BfL traffic light system (green, amber, red) to assess quality. A good quality scheme will perform well against all 12 of the questions, the top score therefore being 12 Greens. A red light gives warning that a particular aspect of a development needs to be reconsidered. Applicants at the pre-application stage should address any ‘reds’ before progressing to formal planning. Where schemes score 'ambers' and ‘reds’ at the formal application stage the council will provide advice on amending the proposal, and will need to be satisfied that any improvements identified have been addressed if support is to be given to a scheme.
Housing Space Standards
5.302 The amount of space in a home influences how people live, impacting on their health and wellbeing. Providing homes of sufficient size to allow residents ‘room to grow’ is a critical part of delivering sustainable communities. The Government have set Nationally Described Space Standard (NDSS) (106) which reflect the need for sufficient indoor space to ensure homes meet typical day to day needs at a given level of occupation. While evidence (107) suggests that many new homes are smaller than the recommended NDSS minimum size standards, there is a need to test whether this is also the case within County Durham. Further evidence will therefore be prepared to determine if a policy on space standards would be appropriate in the next draft of the Plan.
How will the Policy be monitored?
Indicator:
1. Density of new housing schemes on allocated and windfall sites
2. Proportion of approved housing developments receiving Building for Life 12 accreditation
Target:
1. 30 dwellings per hectare and where applicable the allocation yield.
2. 100%
105 http://www.designcouncil.org.uk/resources/guide/building-life-12-third-edition 106 Technical housing standards – nationally described space standard, March 2015 107 The Case for Space, RIBA, September 2011
County Durham Plan Preferred Options 157 County Durham Plan Preferred Options
Question 39
This is our preferred policy. Do you have any comments?
Promoting healthy communities
5.303 The National Planning Policy Framework (NPPF) states that the planning system can play an important role in facilitating interaction and creating healthy, safe and inclusive communities. This Plan seeks to embed health and wellbeing considerations throughout to achieve healthy places with safe, accessible and inclusive environments for people to come together. It is also necessary to deliver the social, recreational and cultural facilities and services that communities need to facilitate active and healthy lifestyles such as through the provision of appropriate green infrastructure.
5.304 Encouraging sustainable travel patterns through the location of new development can promote healthy lifestyles by allowing people to reach employment and other services by walking or cycling. The location of housing, employment, education, health, retail and leisure facilities can have an impact on accessibility, particularly for those without a car. Good quality transport infrastructure can improve access to health and social care facilities.
5.305 Positive health impacts can result from increased employment. They can also arise by ensuring housing is designed with access to green space, public transport and traffic management in mind (e.g. car free zones, self-enforcing speed limits, walking/cycling links between residential and business areas). Buildings that are well insulated also have benefits for health as well as reducing costs and contributing to addressing climate change.
5.306 Increasing demand for certain types of health, leisure and social care services such as elderly accommodation may change the demand for primary and community care, both mental and physical care. Discussions on forward planning and future service provision with healthcare providers is taking place on a continuous basis to ensure we are positively planning for the health and well-bring of our people.
Policy 32 - Hot Food Takeaways
Policy 32
Hot Food Takeaways (A5 Uses)
Within sub-regional, large town, small town and district centres (as defined in Policy 10 (Retail Hierarchy and Town Centre Development) and as shown on the policies map), in order to minimise the potential detrimental impacts of hot food takeaways, planning applications for A5 uses will only be approved where the proposal would not result in more than 5% of the premises within the centre being in A5 use.
Within defined local centres consideration should be given to the impact that the proposed A5 use would have in terms of the overall vitality and viability considering the numbers of existing A5 uses and will be refused if the impact is unacceptable.
In order to promote healthy lifestyles in young people, proposals for A5 uses outside of defined centres but within 400m of an existing or proposed school or college building will not be permitted.
158 County Durham Plan Preferred Options County Durham Plan Preferred Options
Where a proposed A5 use is considered locationally acceptable, consideration will need to be given to the impact that the development would have in terms of amenity, particularly in relation to noise and odours. Where it is considered that the proposal would give rise to unacceptable impact, the application should be refused.
5.307 Reducing levels of obesity is a key objective of the council. One way this can be achieved is to encourage healthy eating. Large concentrations of hot food takeaways within our town centres can have the opposite effect by encouraging unhealthy eating habits. An over-concentration of hot food takeaways can also have a detrimental impact on vitality and viability. They can also give rise to concerns about noise, disturbance, odours, parking and litter and are likely to be considerations in the determination of any planning application. In assessing proposals within commercial centres, consideration will therefore be given to the detrimental impact that an over-provision of A5 uses may have.
5.308 An assessment (108) has been carried out of the numbers of A5 units within our commercial centres. This has identified that some have relatively high existing numbers of A5 uses within them ranging from 1.6% in Peterlee to 9.1% in Ferryhill. It is considered that a threshold of 5% is appropriate to ensure the a diverse mix of uses with our centres. If a proposal would exceed this threshold, in terms of number of units, it will not be permitted, this will include units that are vacant but have planning permission for A5. Six centres (Consett, Ferryhill, Crook, Newton Aycliffe, Spennymoor and Shildon) already have more than 5% of units as hot food takeaways, therefore no further A5 uses would be permitted in these centres.
5.309 The nature of our Local centres in terms of their size and function means that the application of a 5% threshold is not appropriate in assessing such applications. In assessing proposals for A5 uses within Local centres, consideration should be given to the impact that such a proposal would have on the overall vitality and viability of the centre, considering the mix of uses and also the levels of existing vacancies.
5.310 The council have carried out an assessment of Fast Food and its Impact on Health(109) which looks at the density of fast food outlets in County Durham. This provides evidence of a correlation between the density of fast foods outlets and obesity levels amongst children within locations in the County. As the promotion of healthy eating amongst young people is a key national and local priority it is reasonable to limit the number of hot food takeaways close to schools and colleges. Therefore proposals for A5 uses outside of retail centres but within a five to ten minute walking distance of the school, equating to 400m radius, will not be permitted.
How will the Policy be monitored?
Indicator:
1. Percentage of units within Sub Regional, Large Town, Small Town and District centres in use or with planning permission for A5 (hot food takeaways)
Target:
1. A5 not increasing to or exceeding 5%
108 Link to town centre surveys 109 https://durhamcc.objective.co.uk/portal/planning/cdpev/
County Durham Plan Preferred Options 159 County Durham Plan Preferred Options
Question 40
This is our preferred policy. Do you have any comments?
Policy 33 - Amenity and Pollution
Policy 33
Amenity and Pollution
Development will be permitted where it can be demonstrated that there will be no unacceptable impact, either individually or cumulatively, on the environment or amenity of people living and / or working near the proposal. The proposal will also need to demonstrate that future occupiers of the proposed development will have acceptable living and / or working conditions. Proposals which have an unacceptable impact on general amenity such as overlooking, visual intrusion, visual dominance or loss of light or privacy will not be permitted unless satisfactory mitigation measures can be demonstrated.
Development which has the potential to lead to or be affected by unacceptable levels of air quality; inappropriate odours; noise and vibration, either individually or cumulatively, will not be permitted including where any identified mitigation cannot reduce the impact on either the environment, amenity of people or human health to an acceptable level.
Development which does not minimise light pollution to acceptable levels and demonstrate that the lighting proposed is the minimum necessary for functional or security purposes will not be permitted.
Sensitive development (such as housing, schools and hospitals) will not be permitted near to an existing or potentially polluting development including waste water and sewage treatment facilities. Potentially polluting development will not be sited near to sensitive uses unless satisfactory mitigation can be demonstrated.
5.311 Planning has an important role to play in making sure that new and existing development does not have, and is not at risk from, pollution or nuisance which could unacceptably impact upon amenity or human health. The National Planning Policy Framework (NPPF) sets out that new development needs to be appropriate for its location taking into account the likely effects of pollution on health and living conditions including the sensitivity of the site or wider area to impacts. Ensuring that the environment and amenity is protected and human health will not be endangered is also a requirement of Article 13 of the Waste Framework Directive and therefore any adverse impacts arising from a waste development should be satisfactorily mitigated.
5.312 Proposals which have the potential to impact on the general amenity of people either living or working near a proposal will need to demonstrate that there will be no unacceptable impact. This assessment process will apply to all forms of development including small scale householder extensions. If proposals are not carefully designed, all forms of development have the potential to have an unacceptable impact on general amenity, for example, by way of overlooking, overshadowing, loss of light or privacy.
160 County Durham Plan Preferred Options County Durham Plan Preferred Options
5.313 Development, including minerals and waste development, can have the potential for unacceptable impact on the environment and / or people and this can be during all stages of development including construction. This could include air quality, dust, odour, noise and vibration or light and can be of particular significance where they affect the amenity and health of people and sensitive uses such as housing, schools and hospitals or the environment such as sensitive species and habitats.
5.314 The council's Validation Checklist will set out which applications will be required to be supported by an assessment of amenity and pollution. Best practice and guidance materials should be considered in the assessment of relevant development proposals together with relevant Technical Advice Notes for dust, lighting, noise and odour. The assessments necessary to identify any sources of pollution will be required together with any appropriate mitigation measures where relevant.
Air Quality
5.315 The planning system can play an important role in the improvement of air quality. Whether or not air quality issues are relevant to a planning decision will depend on the proposed development and its location. In determining a planning application, the development's likely effect, either directly or indirectly, on air quality will be considered. This will be particularly important in areas which have been designated as an Air Quality Management Area (AQMA).
5.316 There are currently two AQMAs in County Durham, one from Stonebridge to Gilesgate in Durham City and a small area at Pelton Fell Road in Chester-le-Street. Airborne pollutants will therefore need to be minimised in these areas, to ensure that development proposals do not prejudice the implementation of an Air Quality Action Plan to reduce the specified pollutants. Proposals for sensitive land uses (including residential, education and hospitals) in areas exposed to air quality concentrations above the National Air Quality Strategy objectives must take into account the need to reduce exposure by applying the mitigation hierarchy: separation by distance; external layout; internal layout and suitable ventilation.
5.317 We have prepared a guidance note on Air Quality and Planning which provides advice on the type of planning applications for which an air quality assessment will be required together with the format and relevant methodology for how they should be prepared. (110) Major planning and development schemes within an AQMA and surrounding areas will need to be assessed to determine any impact on air quality and showing any ameliorating design measures.
5.318 In addition to reducing impacts on human health, development should not result in the deterioration of protected habitats and species. In addition major development proposals that are likely to increase air pollution in the vicinity of a Natura 2000 site (or a site of equivalent value), either directly or indirectly through, for example an increase in vehicular traffic, will also need to include an assessment under Regulation 62 of the Habitats and Species Regulations 2012 in accordance with Policy 44 (Internationally Designated Sites).
Dust
5.319 The assessment of the impact of dust pollution, both during the construction and operational phase of development, will need to consider the impact on air quality from emissions of PM10 (Particulate Matter below 10 microns) and PM2.5 (Particulate Matter below 2.5 microns) and the potential for visible dust emissions to give rise to unacceptable amenity impacts or to a statutory nuisance to neighbouring sensitive receptors. Dust monitoring may need to be carried out where dust generating activities are to be carried out close to neighbouring sensitive properties. The onus for carrying out the monitoring should normally fall with the operator. The results of monitoring will need to be examined in relation to established ambient background levels.
110 durhamcc-consult.limehouse.co.uk/file/2904908
County Durham Plan Preferred Options 161 County Durham Plan Preferred Options
Odour
5.320 The location of development in areas where there is a sensitive use (including residential, education and hospitals) which may be unacceptably impacted on by odour emissions from new development or changes to existing development should be dealt with through the design of the development and the planning stage rather than needing to seek to abate a statutory nuisance under Environmental Protection legislation. Having quantified the degree of risk of odour emissions from the development then consideration can be given to the mitigation measures included in the policy.
Light Pollution
5.321 Light pollution is artificial light that illuminates areas that are not intended to be lit. The intrusion of overly bright or poorly directed lights can cause glare, wasted energy, have impacts on nature conservation, and affect people's right to enjoy their property. It can also severely affect our view of the night sky. Light pollution may also damage the perception of a heritage asset in its setting, especially if the asset is experienced at night or is floodlit. The NPPF is clear that planning policies should limit the impact from light pollution on local amenity, intrinsically dark landscapes, and nature conservation, primarily through promoting and requiring good quality design.
5.322 Development proposals with the potential to result in unacceptable levels of light pollution, either individually or cumulatively with other proposals, should be accompanied by an assessment of the likely impact to show that the lighting scheme is the minimum necessary for functional or security purposes and that is minimises potential pollution from glare and spillage. Particular attention will be paid to areas where tranquillity and dark skies are valued and may also be sensitive to light pollution, such as the North Pennies Area of Outstanding Natural Beauty, open countryside, within the setting of heritage assets, close to sensitive uses or to areas or features important for nature conservation.
Noise Pollution
5.323 Noise pollution is noise created by man-made sources which, if excessive can cause disturbance or annoyance and negatively affect wildlife and sensitive areas including areas known for their tranquillity. It often occurs as a result of industrial operations, transportation or roads. Good planning should aim to prevent the adverse effects of noise from being unacceptable, as stated in the NPPF. This includes the siting of development that generates noise and development that is sensitive to noise. Planning Practice Guidance (PPG) clarifies that noise is a complex technical issue and that it is necessary to identify whether the overall effect of noise exposure is, or would be, above or below the significant observed adverse effect level and the lowest observed adverse effect level for the given situation.
5.324 It will be necessary to determine the impact of noise producing sources on prevailing ambient background levels and achievement of the World Health Organisation’s recommended maximum noise levels in residential areas (111). Development proposals will be unacceptable where any resulting noise from new development would constitute a Statutory Nuisance under Part III of the Environmental Protection Act 1990 (112), or where the noise impacts, although not sufficient to constitute a Statutory Nuisance, would nonetheless have an unreasonable adverse effect on amenity.
5.325 The impact from potential noise producing sources is dependent on the type and scale of the development proposed. This, in turn, will govern the type of noise assessment that will be necessary.
111 http://www.noisenet.org/Noise_Enviro_WHO.htm 112 http://www.legislation.gov.uk/ukpga/1990/43/part/III
162 County Durham Plan Preferred Options County Durham Plan Preferred Options
5.326 In line with NPPF, we aim to ensure that new development can be integrated effectively with existing businesses and community facilities (such as places of worship, pubs, music venues and sports clubs). Existing businesses and facilities should not have unreasonable restrictions placed on them due to development permitted after they were established.
Waste Water Treatment and Sewage Works
5.327 Planning has an important role to play in ensuring that human health will not be endangered and that the environment and amenity of local communities will be protected and not unacceptably affected by waste development. In doing so, the physical and environmental suitability of sites, including existing and proposed neighbouring land uses will be considered. Where these can not be avoided, any adverse impacts will need to be mitigated through the design of the waste development and by appropriate environmental enhancements ensuring it can be accommodated satisfactorily.
5.328 Development of sensitive uses within close vicinity (200m)(113) of waste water treatment or sewage works will be considered inappropriate development as it is likely to lead to amenity issues such as odour, noise and vermin and potentially statutory nuisance(114). This can also be an issue in areas where speculative development of sensitive uses such as housing, can lead to the loss of land for expansion of existing waste water facilities. Therefore careful consideration, in consultation with the necessary bodies, must be given to the proximity of sensitive receptors, the likelihood of complaints and any implications on health.
5.329 Adverse effects can sometimes occur beyond 200m however and it will be for the council to determine whether an assessment is required. (115)
How will the Policy be monitored?
Indicator:
1. Appeals upheld contrary to this policy
Target:
1. None upheld at appeal
Question 41
This is our preferred policy. Do you have any comments?
113 Whilst a 'buffer' is difficult to determine as cases will differ, this is considered a reasonable distance to flag issues. 114 Planning Practice Guidance (PPG) defines waste water management as waste development. Appendix B of National Planning Policy for Waste (NPPW) lists criteria for use in allocating sites or determining planning applications. These locational criteria include land use conflict, noise and odour as well as vermin and air emissions. 115 Northumbrian Water Limited currently produce a factsheet 'Building near to Sewage Treatment Works' which specifically deals with noise and odours and the potential for statutory nuisance.
County Durham Plan Preferred Options 163 County Durham Plan Preferred Options
Policy 34 - Despoiled, Degraded, Derelict, Contaminated and Unstable Land
Policy 34
Despoiled, Degraded, Derelict, Contaminated or Unstable Land
Development will not be permitted unless the developer can demonstrate that:
a. All investigations and risk assessments have been undertaken by an appropriately qualified person; and
b. Any existing despoiled, degraded, derelict, contaminated or unstable land issues can be satisfactorily addressed by appropriate mitigation measures prior to the construction or occupation of the proposed development; and
c. The site is suitable for the proposed use, and does not result in unacceptable risks which would adversely impact human health, and the built and natural environment.
5.330 New development can provide an opportunity to address the risk associated with despoiled, derelict, degraded, contaminated or unstable land by bringing about its improvement through remediation.
5.331 Despoiled land is land which has been affected through the removal of material assets i.e. mineral resources which has affected the condition of the land. Degraded land is land that has lost some degree of its natural productivity due to human-caused processes. Derelict land is land that has become damaged by industrial or other development possibly with the remains of previous buildings and structures upon it. Such land requires remediation to make it suitable for a new land-use. Within County Durham significant areas of these types of land have previously been subject to remediation by the council following the closure of the coal mines and other heavy industries.
5.332 Contaminated land can be regarded as any land which is in such a condition by reason of substances in, on or under the land, that it can cause a risk to human health, property or the wider environment. Contaminated land can arise from a number of sources typically associated with some types of industrial and manufacturing uses such as gas, coke, chemical and steel works. While it is more likely to arise in former industrial areas it can also occur in other locations including in the countryside.
5.333 The effects of land instability may result in landslides, subsidence or ground heave. Failure to deal with land stability issues could cause risk to human health, local property and associated infrastructure, and the wider environment. Within County Durham the principle issue which relates to ground instability relates to past coal mining. Large parts of County Durham have been identified by the Coal Authority as 'Development High Risk Areas' and 'Development Low Risk Areas' due the known occurrence of coal mining legacy issues and related hazards. In these areas coal mining legacy issues have the potential to create unstable land and risks to surface development and it is essential for developers to demonstrate that new development will be safe and stable(116).
116 Please refer to the Map A - Coal Mining Legacy Map in the policies map document. This map shows the extent of the 'Development High Risk Areas' and 'Development Low Risk Areas' in County Durham. Further information about the Coal Authority's Risk Based Approach can be found on the Coal Authority's website: http://coal.decc.gov.uk/en/coal/cms/services/planning/strategy/strategy.aspx.
164 County Durham Plan Preferred Options County Durham Plan Preferred Options
5.334 When new development is proposed it is essential that the developer undertakes investigations and risk assessments and undertake any necessary remedial measures to ensure that any despoiled, degraded, derelict, contaminated and unstable land issues are satisfactorily addressed. The possibility of contamination and stability issues should always be considered when the proposed development introduces vulnerable end uses, such as housing.
5.335 Where land is contaminated or there is reason to believe contamination could be present the council will adhere to the Yorkshire and Humberside Pollution Advisory Council technical guidance on contaminated land(117). In line with current best practice all aspects of investigations into possible land contamination should follow the guidelines within CLR11 Model Procedures for the management of land Contamination (Environment Agency 2004). Investigations will also need to consider the possibility that new pollution pathways may be introduced as a result of development activities, such as piling, drain laying and trenches for services and that new receptors may be introduced by the development proposed. Following remediation contaminated land should be suitable for the proposed use, and as a minimum, it should not be capable of being determined as contaminated land under Part 2A of the Environmental Protection Act 1990.
5.336 Where there is reason to believe that land stability is an issue which must be taken into account in the determination of a planning application, a slope stability or land stability risk assessment will be required. In particular, where there is reason to believe that unstable land could be present due to coal mining legacy issues a Coal Mining Risk Assessment Report will be required to be submitted either as part of the planning application, or subsequently via condition whereby the council will consult the Coal Authority unless the development is exempt. There may also be a need for appropriate mitigation measures to ensure that there will be no future ground instability and public safety issues arising from the development. Within the rest of the coalfield the Coal Authority's Standing Advice will apply(118).
5.337 Despoiled, derelict, degraded, contaminated or unstable land can sometimes contain land of value to both the natural and built environment including habitats or species of nature conservation value and features of historical interest. In addition substantial parts of the county are above groundwater aquifers, and therefore development proposals should not create a pollution pathway into any potential water supply. A careful balance will need to be made in many cases between the benefits of remediation and the harm to other interests. Sufficient information will be needed at the planning application stage to ensure the impacts on the natural and built environment are fully understood.
5.338 It is recognised that remediating and mitigating despoiled, derelict, degraded, contaminated and unstable land may add substantially to the difficulty and cost of developing land. Consequently, the viability of development where there are high remediation costs will be a factor which will be taken into account.
117 Development on Land Affected by Contamination - Technical Guidance for Developers and Landowners and Consultants has been adopted for use by the County Council. 118 Guidance on Coal Mining Risk Assessments are set out in Appendix B.
County Durham Plan Preferred Options 165 County Durham Plan Preferred Options
How will the Policy be monitored?
Indicator:
1. Number of eligible schemes that are supported by an appropriate assessment.
Target:
1. 100%
Question 42
This is our preferred policy. Do you have any comments?
Meeting the challenge of climate change, flooding and coastal change
5.339 One of the objectives of the Sustainable Community Strategy (SCS) is to mitigate the impact of, and adapt to climate change. Addressing climate change is of importance for sustainable development and a key priority of the National Planning Policy Framework (NPPF). We therefore need to encourage the prudent use of non-renewable resources, contribute to reducing emissions and stabilising climate change (mitigation) and take into account the unavoidable consequences (adaptation). However, addressing climate change is multi-faceted and cannot be addressed through a single policy or plan. Reducing carbon emissions and adapting to the effects of climate change therefore underpins every aspect of planning and helps support regeneration and improve the health and quality of life of everyone in County Durham. Climate change mitigation and adaptation must therefore be integrated throughout the Plan.
5.340 The NPPF sets out a positive approach in order to secure radical reductions in greenhouse gas emissions. It is made clear that decisions should be taken in line with the 2008 Climate Change Act, which has the provision to reduce carbon dioxide emissions by 80% by 2050 and by 34% by 2020. We have gone further and want to reduce emissions by 40% by 2020 and by 55% by 2030(119). The NPPF also states that development should avoid increasing vulnerability to a range of impacts arising from climate change including flood risk, coastal change, water supply and changes to biodiversity and landscape.
5.341 The Plan can make a major contribution to mitigating and adapting to climate change by shaping new and existing developments in ways that reduce carbon emissions and positively build community resilience to problems such as extreme heat or flood risk. It can do this by ensuring that new development is located to reduce the need to travel and support the fullest possible use of sustainable transport. It should be designed in a way that limits carbon dioxide emissions, uses decentralised and renewable or low carbon energy and minimises vulnerability to future climate impacts.
119 http://durhamcc.limehouse.co.uk/portal/planning/archive/
166 County Durham Plan Preferred Options County Durham Plan Preferred Options
Policy 35 - Renewable and Low Carbon Energy
Policy 35
Renewable and Low Carbon Energy
Renewable and low carbon energy development in appropriate locations will be supported. In determining planning applications for such projects significant weight will be given to the achievement of wider social, environmental and economic benefits.
Proposals should include details of associated developments including access roads, transmission lines, pylons and other ancillary buildings. Where relevant, planning applications will also need to include a satisfactory scheme to restore the site to a quality of at least its original condition once operations have ceased. Where necessary, this will be secured by bond, legal agreement or condition.
5.342 We will seek to contribute to reducing our energy dependence on external sources and encourage the development of an ever widening range of renewable energy schemes. To increase awareness of these schemes we will continue to form working partnerships with academic and industrial associations.
5.343 The development of renewable sources of energy makes a valuable contribution to tackling the rate of climate change, enabling us to live in a more sustainable manner, and helps to reduce our reliance on fossil fuel derived energy provision from abroad. We recognise the wide ranging opportunities for accessing renewable energy that exist within County Durham and will seek to make full use of those opportunities. However, their exploitation must be carefully weighed against the need to protect our unique natural environment and heritage.
5.344 The Energy Act 2013 sets out the legislative framework for delivering secure, affordable and low carbon energy. In addition the UK Renewable Energy Roadmap 2011 and 2013 update outline the UK Government’s commitment to increasing the use of renewable energy. The document sets out the Government’s commitment to meet 15% of the UK energy demand from renewable resources by 2020 and that this overall obligation includes three sub-targets: 30% in electricity 12% in heat and 10% in transport. Nonetheless MPs on the Energy and Climate Change Committee have warned that, on its current course, the UK will fail to achieve its 2020 renewable energy targets.
5.345 County Durham has the capacity for a wide range of renewable energy schemes which may allow us to exceed the 15% target baseline set by the Government, subject to environmental constraints and the impact on communities. Currently there is in excess of 200MW of renewable electricity operational or approved in County Durham. Any such figure is a snapshot in time and will constantly change over the period of the Plan.
5.346 Whilst most renewable technologies currently within the county are electricity generators such as wind and solar photovoltaics (PV), renewable heat technologies form an essential part of our carbon reduction strategy, with solar thermal panels, biomass and heat pumps potentially having a substantially positive impact by displacing fossil fuels used for heating and hot water. Further opportunities include the potential to utilise the significant deep geothermal resource in Weardale and along the Butterknowle Fault and to investigate the use of mine water as potential sources of low carbon heating in appropriate areas. We are also engaged in examining the potential for low carbon
County Durham Plan Preferred Options 167 County Durham Plan Preferred Options
district energy within Durham City. We will continue to work with partners to investigate and drive forward emerging and innovative opportunities around low carbon and renewable energy technologies as we seek to move to a secure, low carbon society and economy.
5.347 We will continue to work with and support businesses, communities and individuals who wish to develop their own renewable or low carbon scheme, especially those communities in rural areas not connected to the gas network. Community benefits associated with renewable energy schemes can help to give a community a sense of ownership and address their concerns over development. We will consider the community benefits attached to developments, such as the provision of local employment, community funds and cheaper local electricity rates to alleviate fuel poverty where the community fund or other benefits are directly related to the development. In some cases the benefits to the community may be more direct for instance when a renewable energy scheme is a community-led initiative, again this will be considered when determining a proposal.
5.348 The restoration of sites once operations have ceased also needs careful consideration. Where relevant, planning applications should clearly set out the length of time that the development will be in place. Some developments will also have conditions attached to their planning permission imposing a time limit and requiring the restoration of the site. In addition, a restoration or performance bond may be required to ensure that the site is appropriately restored post decommissioning. Restoration means that all development, including ancillary infrastructure, footings and access tracks should be removed from the site and any soils and vegetation restored, to ensure the land is returned to the condition it was in before the development. The generic provisions of this policy especially in relation to associated development and restoration apply to all renewable energy developments including the development of wind turbines. Other specific issues relating to the development of conventional wind turbines are covered by Policy 36 (Wind Turbine Development).
How will the Policy be monitored?
Indicator:
1. Renewable energy capacity of approved and completed schemes by type
Target:
1. Increasing trend above the baseline figure (2011)
Question 43
This is our preferred policy. Do you have any comments?
168 County Durham Plan Preferred Options County Durham Plan Preferred Options
Policy 36 - Wind Turbine Development
Policy 36
Wind Turbine Development
Wind energy development will only be permitted in the areas identified as suitable for development on Map G in the policies map document and where the applicant is able to demonstrate that, following consultation, those planning-related impacts identified by any affected local communities have been fully addressed. In those circumstances, planning permission will be granted unless:
a. There would be unacceptable harm, individually or cumulatively, to the amenity of local communities or nearby residents, due to noise, traffic or visual intrusion;
b. In respect of the visual amenity of individual residential properties, any proposed turbine would be located at a distance of less than 6 times its overall height of the property, unless it can be demonstrated that it would not be overbearing;
c. In respect of shadow flicker, any proposed turbine would be located at a distance of less than 10 times its rotor diameter of a susceptible dwelling house, community facility or workplace, unless it can be demonstrated that shadow flicker would not occur, or would be prevented from occurring;
d. There would be unacceptable harm individually or cumulatively to important species or habitats(120);
e. There would be unacceptable harm individually or cumulatively to the character of the landscape;
f. There would be any adverse impacts on radar systems which are not capable of being acceptably mitigated;
g. There would be an unacceptable adverse impact on TV reception, communications links or telecommunications systems which is not capable of being acceptably mitigated;
h. There would be unacceptable harm either individually or cumulatively to the significance of a heritage asset or its setting; or
i. Any proposed wind turbine would be located within topple distance plus 50m or its height x1.5 (whichever is the lesser) of a Motorway, Trunk Road or Railway line or topple distance plus 10% of an A, B or C class road, or if its blades would over-sweep a public right of way.
Neighbourhood Plans
In addition to the areas identified in this Plan, permission will be granted for wind energy development where it is in an area clearly identified as suitable for such development in a Neighbourhood Plan, and the development meets the other provisions of this policy(121).
120 For some species, this may include functionally linked land. 121 This does not preclude the necessity for Environmental Impact Assessment and other site specific environmental assessment.
County Durham Plan Preferred Options 169 County Durham Plan Preferred Options
Extensions and Alterations to Existing Wind Energy Development
Extensions to existing wind farms will be supported provided that the proposals are in keeping with the character of the existing development and meet the other provisions of this policy.
Proposals to re-commission or re-power wind energy development will be supported provided that the development meets the other provisions of this policy, taking full account of the effects of the extended timescale.
Wind Turbine Development Affecting the North Pennines Area of Outstanding Natural Beauty (AONB)
Small scale wind development(122) within the AONB will be permitted in the suitable areas identified on the policies map for its benefits to the economy, rural communities and wider environment provided that it meets the other provisions of this policy.
Wind development outside of the AONB which has an unacceptable impact on views within the AONB, or important views of the AONB, will not be permitted. Wind development affecting the Yorkshire Dales National Park will be subject to the same considerations.
5.349 Wind energy makes up the majority of operating renewable energy generating capacity within the county (around 68% of operational and approved capacity). Recent changes in government policy and support mechanisms for wind development have led to a reduction in the number of new proposals for larger scale schemes coming forward but there continues to be some interest from this sector, and particularly for single turbines. The Plan identifies areas that are suitable for different scales of wind energy development and criteria against which all applications will be assessed.
5.350 Considerable new capacity for wind energy has been developed in County Durham over the last ten years. At January 2016, over 142 MWe(123) of installed capacity was operational or permitted. This equates to around 281 GWh per annum (assuming a 22% load factor) which represents over 14% of the County's overall electricity use or 35% of its household electricity use. The majority of this, and all of the commercial scale development, is within areas which were identified as BALC (124)
5.351 Current government policy(125) is that local authorities should only grant planning permission for wind energy development involving one or more turbines if the development site is in an area identified as suitable for wind energy development in a Local or Neighbourhood Plan. This applies to development of any scale requiring planning consent. If any further development of wind energy is to be accommodated in the county it is therefore necessary for the Plan to identify suitable areas.
Suitable Areas
5.352 The suitability of an area to accommodate wind energy development in its various forms, from small scale single turbines to wind farms of larger turbines depends on a number of factors. The Wind Turbine Evidence Paper(126) contains a county-wide analysis of the main technical and environmental factors that can constrain the potential for the development of turbines of different
122 Turbines of 25m or less. 123 Megawatt electric; electric output of a power plant in megawatts. The electric output of a power plant is equal to the thermal overall power multiplied by the efficiency of the plant. 124 Broad Areas of Least Constraint identified in the studies carried out by ARUP on behalf of the North East Assembly. 125 http://www.parliament.uk/documents/commons-vote-office/June%202015/18%20June/1-DCLG-Planning.pdf 126 https://durhamcc.objective.co.uk/portal/planning/cdpev/
170 County Durham Plan Preferred Options County Durham Plan Preferred Options
sizes. This is not exhaustive, dealing only with those constraints that can be readily mapped at a strategic scale. The size ranges used in the analysis were based on development proposals that have come forward in the area in recent years:
Small - 11-25m in height;
Small-Medium - 26-40m in height;
Medium - 41-65m in height;
Medium-Large - 66-100 in height; and
Large - 100-136m in height.
5.353 The Wind Turbine Evidence Paper also contains a landscape sensitivity study which analyses the potential sensitivity of different landscape types and character areas to wind energy development in these size ranges and the cumulative effects of any existing development in those areas. This was informed by the County Durham Landscape Character Assessment(127). The Wind Turbine Evidence Paper explores a range of alternatives for identifying suitable areas for wind energy development having regard to landscape sensitivity, the mapped technical and environmental constraints, and the cumulative effects of existing development.
5.354 This analysis informed the identification of suitable areas for wind energy development of different sizes shown on Map G in the policies map document. Suitable areas for small (11-25m) and small-medium (26-40m) turbines are identified as relatively extensive tracts of land. These areas are considered to be broadly suitable for the development of turbines in those size ranges subject to site-specific factors which will need to be assessed on a case by case basis. Suitable areas for medium and larger turbines (>41m) are identified as point symbols relating to existing turbines in that size range. These are indicative of the areas in which the re-commissioning of, or extension to, existing developments would be likely to be acceptable, subject again to site specific factors and informed by the landscape sensitivity study.
Assessment of Proposals
5.355 Current government policy also states that local authorities should only grant planning permission for wind energy development involving one or more turbines if, following consultation, it can be demonstrated that the planning impacts identified by affected local communities have been fully addressed and therefore the proposal has their backing.
5.356 In the development of wind turbine applications, positive, proactive and meaningful engagement with the affected communities will be expected from an early stage. From 17 December 2013, pre-application consultation with local communities became compulsory for the 'more significant' onshore wind applications(128). Following consultation, the applicant will need to demonstrate that all environmental and other planning-related impacts identified by affected local communities have been addressed fully and the proposal therefore has their backing. The combined adverse impacts of the scheme identified by local communities should be significantly and demonstrably outweighed by its benefits.
127 https://durhamcc.objective.co.uk/portal/planning/cdpev/ 128 By virtue of the Town and Country Planning (Development Management Procedure and Section 62A Applications (England) (Amendment) Order 2013 (SI 2932). This is for onshore wind development involving more than 2 turbines or any turbine with a hub height exceeding 15 metres height and should be in line with our Statement of Community Involvement (SCI).
County Durham Plan Preferred Options 171 County Durham Plan Preferred Options
5.357 A number of issues influence the location of wind turbine developments and the acceptability of planning application proposals. Key issues to be considered include: residential amenity in respect of visual impact, noise, and shadow flicker; biodiversity, ecology and ornithology; highways; heritage; aviation; Public Rights of Way; landscape and visual impacts; impacts on designated Landscapes such as the North Pennines AONB; and impacts upon TV reception and telecommunications links.
5.358 Due to their operation wind turbines create noise. Government guidance is clear on the methodology to be used to assess wind turbine development(129). The council take seriously the potential for noise impacts from all forms of new development on local communities and those working in the vicinity.
5.359 While there is no right to a view, the effects of large moving structures in close proximity to a residential property can be overbearing. This will depend partly on measurable factors such as scale and proximity, partly on contextual factors such as the screening effects of terrain, buildings or vegetation, the orientation of the windows of habitable rooms or garden areas, and partly on the subjective response of the individual viewer. Contextual factors can be assessed on a case by case basis but we believe that in order to give some certainty to developers and those who may be affected by development it is useful to establish at what kind of distance range in open views it is likely to consider a tall structure to be overbearing. We accept that any figure given for this will be a point on a continuum rather than an obvious threshold on which there will be a high degree of consensus. In identifying a figure of 6 times tip height we have had regard to past decision-making, both our own and those of a range of planning inspectors. The vast majority of the 180 turbines currently operating or approved within the county are in excess of that distance from the nearest non-involved property.
5.360 Shadow flicker is the effect caused when an operating turbine is located between the sun and a receptor, such as a dwelling or place of work. The effect occurs when the shadow of the rotating blades falls over the dwelling causing the light intensity within affected rooms to fluctuate. Shadow flicker can be controlled either passively, by maintaining an appropriate distance from a susceptible property, typically around 10 times the diameter of the rotor, or actively by installing management systems which shut down a turbine during periods when shadow flicker could occur. Although this issue is routinely dealt with well in larger scale developments, proposals continue to come forward for smaller developments where the potential for shadow flicker has not been assessed or where reference is made to acceptable levels of shadow flicker based on standards from other countries. There is no UK standard for acceptable levels of shadow flicker. We believe that shadow flicker can and should be avoided, either by passive or active means, and that developments which fail to do so should not be permitted.
5.361 All wind turbine applications will be subject to and must be compliant with other relevant policies within the Plan and any other relevant planning documents. All turbine applications will require an adequate level of ecological survey and assessment including up to Environmental Impact Assessment level when required. Any ecological data submitted in support of a turbine application will need to be compliant with all relevant protected species and habitats legislation including groundwater habitats. Ecological surveys submitted in support of turbine applications will need to be compliant with the most up to date industry guidance in terms of timing, survey nature, duration and content and must provide a comprehensive assessment of the biodiversity value of the site as well as a clear understanding of all impacts on biodiversity the application may have. This may mean that surveys and assessments will have to extend outside of the application area when it is necessary to provide comprehensive data and to comply with legislation.
129 The National Planning Practice Guidance section on Renewable and Low Carbon Energy Paragraph 015 Reference ID: 5-015-20140306 states that 'The Assessment and Rating of Noise from Windfarms' (ETSU-R-97) should be used, and that the Institute of Acoustics good practice guidance on noise assessment is recognised as a supplement to ETSU-R-97 and is industry good practice.
172 County Durham Plan Preferred Options County Durham Plan Preferred Options
5.362 In relation to the impact on designated and non-designated heritage assets, proposals should not cause substantial harm to the significance of such assets including their setting unless such harm is proven necessary to secure significant public benefits. Proposals which result in less than substantial harm would be weighed against the public benefits of the development. Opportunities to mitigate harm and enhance understanding of the historic environment will be encouraged. The potential impact of proposals within the identified Suitable Areas will be assessed on a case by case basis, through the development management process.
5.363 In the case of aviation, any adverse impact upon radar, either civil or military, should be avoided, and mitigation should be agreed with the airport or operator involved. Wind energy development can cause issues with regard to airspace and radar, and the UK has a densely populated airspace. This can lead to objections on radar grounds from a variety of sources from the Royal Air Force, Ministry of Defence to NATS (National Air Traffic Control Services) and the airports themselves. The council will work with developers to reach positive solutions where possible with the objectors concerned. In addition to air traffic radar, wind turbines may affect other types of systems such as weather radar operated by the Meteorological Office, and seismological recording equipment. It is important to mitigate these effects.
5.364 The identification of stand-off distances from highways and footpaths is based on both the risk of harm and the consequences of harm. Highways England/DfT(130) recommend that commercial turbines should be set back a distance equal to their height plus 50 metres or their height x 1.5, whichever is the lesser from motorways and trunk roads. It is considered that this should also apply to railway lines for safety. Stand-off distances of topple height distance (THD) to blade tip plus 10% are generally observed for other public highways. We consider this to be an appropriate set back for A class (non-trunk), as well as for B and C class roads. In situations where it is impossible to achieve this distance from minor roads, where the risks of harm are lower, nacelle/hub components should generally be outside THD to the highway. Turbines are considered to pose a very low risk to users of public rights of way. A set back equivalent to the area over-swept by the rotor blades prevents footpath users from being intimidated by the moving structure.
5.365 Due to their operation wind turbines can interfere with telecommunication links and TV reception. Early consultation should be sought with the Office of Communications, who hold a central register of all civil radio communications operators in the UK and act as a central point of contact for identifying specific consultees relevant to a site. We believe that any impact on telecommunications systems can and should be avoided, and that developments which fail to do so should not be permitted.
5.366 As tall moving structures wind turbines inevitably dominate their immediate visual environment and can be prominent features in wider views. Where wind farms or scattered single turbines are developed in proximity to each other they can create more extensive tracts of what are sometimes described as ‘wind farm landscapes’. The potential cumulative effect of existing and new wind turbines on the character of the landscape has informed the selection of Suitable Areas. The approach taken has been to seek to avoid the further extension or coalescence of existing wind farm landscapes and to avoid a substantial intensification of development in those areas. It is nevertheless likely to be the case that areas where development has taken place in the past will be the best places to locate development in future should the need arise. Where carefully considered extensions to, or re-powering of, existing wind farms can be done without unacceptable additional effects, we believe that this should be supported. Wind development is a temporary use of land and its impacts are assessed on that basis. The de-commissioning of wind turbines and the restoration of the site are generally secured by condition. In determining whether to extend the life of development through re-powering care will need to be taken to ensure that the effects of the extended timescale are fully considered.
130 DfT Circular 02/2013 'The strategic road network and the delivery of sustainable development' (2013).
County Durham Plan Preferred Options 173 County Durham Plan Preferred Options
5.367 England’s AONBs vary in their character and in their sensitivity to different forms of development. Conserving the relative wildness and remoteness of the North Pennines landscape is fundamental to the purposes of its designation. This wildness, coupled with the openness of the landscape and high degree of inter-visibility across the high ground of the AONB where much of the better wind resource lies, makes it highly vulnerable to the impacts of wind energy development. The sensitivity analysis contained in the The Wind Turbine Evidence Paper identifies relatively widespread sensitivity to small-medium and larger scales of turbine in the AONB, but also identifies lower sensitivity in some areas to small turbines (<25m). Potentially suitable areas for small scale development within the AONB are identified on the policies map. Development outside of the AONB can also affect its special qualities. More information on this can be found in the North Pennines AONB Planning Guidelines. This has been captured in the sensitivity assessment informing the selection of suitable areas, but additional care will need to be taken in considering individual proposals.
How will the Policy be monitored?
Indicator:
1. Appeals upheld contrary to this policy
2. Renewable energy capacity of approved and completed schemes
Target:
1. None upheld at appeal
2. Increasing trend above the baseline figure (2011)
Question 44
This is our preferred policy. Do you have any comments?
Policy 37 - Water Management
Policy 37
Water Management
Flood Risk and Sustainable Drainage Systems
All development proposals will be required to consider the effect of the proposed development on flood risk, both on-site and off-site, commensurate with the scale and impact of the development and taking into account the predicted impacts of climate change. This includes completion of a Flood Risk Assessment (FRA) where appropriate. Development will not be permitted unless:
174 County Durham Plan Preferred Options County Durham Plan Preferred Options
a. In the functional floodplain (flood zone 3b), as identified in the Strategic FRA, it is water compatible or essential infrastructure;
b. In flood zones 2 and 3a it passes the Sequential Test, and if necessary the Exceptions Test, as required by national policy; and
c. It can be proven through a FRA that the development, including the access, will be safe, without increasing or exacerbating flood risk elsewhere and where possible will reduce flood risk overall(131);
Regarding Surface Water Flood Risk
d. For major developments (132) the management of water must be an intrinsic part of the overall development;
e. There is no net increase in surface water runoff for the lifetime of the development on all new development. Where greenfield sites are to be developed, the runoff rates must not exceed and where possible should reduce the existing greenfield runoff rates(133). On previously developed land, as close as practicable to a greenfield rate must be achieved. In exceptional cases where the developer can satisfactorily demonstrate that greenfield run-off rates are unachievable, a betterment rate (which should be a minimum of 50% of the existing site run-off rate) will be agreed with the council(134). Surface water run-off must be managed at source wherever possible and disposed of in the following order:
1. To an infiltration or soak away system.
2. To a watercourse open or closed.
3. To a surface water sewer.
4. To a combined sewer.
Disposal to combined sewers should be the last resort once all other methods have been explored.
f. Part of the development site is set aside for surface water management and uses measures to contribute to flood risk management in the wider area. These measures will supplement green infrastructure networks, thereby contributing to mitigation of climate change, water quality and flooding as an alternative to, or complementary to, hard engineering;
g. Where sites may be susceptible to over land flood flows (as shown in the Strategic Flood Risk Assessment) or lie within a Surface Water Risk Area (as shown in the Surface Water Management Plan) then developers must put adequate protection in place;
131 In flood zone 1 an FRA will only be required for sites over 1 hectare, where it has been identified as being within in a critical drainage area or where proposed development or a change of use to a more vulnerable class may be subject to other sources of flooding. 132 See Glossary for definition. 133 Existing greenfield run off rates for different areas in the county are set out in the Surface Water Management Plan 2011. 134 In line with the County Durham Surface Water Management Plan 2011: http://www.durham.gov.uk/Pages/Service.aspx?ServiceId=8233 and the Durham County Council Sustainable Drainage Systems (SuDS) Adoption Guide 2016 or any subsequent iterations
County Durham Plan Preferred Options 175 County Durham Plan Preferred Options
h. The development incorporates a Sustainable Drainage System (SuDS) to manage surface water drainage. Where SuDS are provided arrangements must be put in place for their whole life management and maintenance. Where appropriate SuDS should contribute to the provision of Green Infrastructure; and
i. All new development with culverts running through the site must seek to de-culvert watercourses for flood risk management and environmental benefit, unless it can be clearly demonstrated that this is not practical.
Where improvement works are required to ensure that the drainage infrastructure has sufficient capacity to support proposed new development, developer contributions will be required in accordance with Policy 27 (Developer Contributions).
Water Quality
All development must demonstrate control of the quality of surface water runoff during construction and for the lifetime of the development.
Development which could adversely affect the quality or quantity of surface or groundwater, flow of groundwater or ability to abstract water will not be permitted unless it can be demonstrated that no adverse impact would occur or mitigation could be put in place to minimise this impact.
Policy 38 - Water Infrastructure
Policy 38
Water Infrastructure
Disposal of Foul Water
In the consideration of development proposals, the hierarchy of drainage options that must be considered and discounted for foul water are (in the following order):
1. Connection to the public sewer.
2. Package sewage treatment plant (which can be offered to the Sewerage Undertaker for adoption(135).
3. Septic Tank (which must drain into an appropriate soak away and not discharge directly into a watercourse).
Applications involving the use of non-mains methods of drainage (including Septic Tanks/Cess Pits) will not be permitted in areas where public sewerage exists.
135 Package plants must comply with the Sewers for Adoption standards in order for them to be adopted. https://www.nwl.co.uk/business/dev-sewerage-services.aspx.
176 County Durham Plan Preferred Options County Durham Plan Preferred Options
Sewage and Waste Water Infrastructure
Proposals for new or extensions/improvements to existing waste water, sludge or sewage treatment works will be permitted, unless the adverse impact of development outweighs the need for greater capacity and other benefits.
Flood Defence Infrastructure
Proposals for additional flood defences will be permitted only where it can be demonstrated that the proposal represents the most sustainable response to a particular threat and demonstrates long term maintenance can be achieved.
Proposals which seek to mitigate flooding, create natural flood plains or seek to enhance and/or expand flood plains in appropriate locations will be permitted.
5.368 The water environment is vital for its contribution to the county’s biodiversity and is important to the quality of life of people both within and outside the county. Development must be within environmental limits and carefully consider how the water environment will be affected. How wastewater can be safely disposed of, the protection of vulnerable aquifers (including Environment Agency designated Drinking Water Protected Areas (DrWPAs) and Groundwater Source Protection Zones) and the prevention of increased flooding are key considerations in developing sustainable communities.
5.369 The Environment Agency is the regulator for licensing abstractions, pollution control and the quality of the water environment, whilst Northumbrian Water Limited (NWL) is responsible for water services and sewerage. The council have been working closely with the Environment Agency and NWL, and we will continue to collaborate with them and other infrastructure providers to inform future decision making.
5.370 The council as the Lead Local Flood Authority (LLFA), is responsible for developing, maintaining and applying a strategy for local flood risk management and for maintaining a register of flood risk assets. We also have lead responsibility for managing the risk of flooding from surface water, groundwater and all watercourses that are not classified as a main river (which are the responsibility of the Environment Agency).
5.371 As the LLFA we are a statutory consultee for surface water flood risk on all sites and ensure that the proposed drainage system applies the principles of the surface water management train and meets the new National Standards for Sustainable Drainage 2011(136) covering design, construction, operation and maintenance. The council will consider adopting SuDS on major developments providing they meet specific design and maintenance criteria, as set out in the Durham County Council Sustainable Drainage Systems (SuDS) Adoption Guide, which also provides guidance on applying the surface water management train.(137).
5.372 The Water Cycle Study (WCS)(138) was carried out to ensure that the growth envisaged for the county can be supported and is not hindered by water infrastructure and resources. This has informed the Infrastructure Delivery Plan (IDP) as well as allocations in this Plan.
5.373 The Strategic Flood Risk Assessment (SFRA)(139)provides an overview of the areas susceptible to flooding and the risk posed by flooding from rivers, the North Sea, groundwater and surface water runoff. The SFRA assessed the risk at the time it was prepared, as well as the increased
136 https://www.gov.uk/government/uploads/system/uploads/attachment_data/file/82421/suds-consult-annexa-national-standards-111221.pdf 137 https://durhamcc.objective.co.uk/portal/planning/cdpev/ 138 https://durhamcc.objective.co.uk/portal/planning/cdpev/ 139 https://durhamcc.objective.co.uk/portal/planning/cdpev/
County Durham Plan Preferred Options 177 County Durham Plan Preferred Options
risk from a number of factors including a changing climate and the construction of new development. It is also necessary to take into account updated Environment Agency flood maps which may include changes to flood zones 2 and 3, which have occurred since the SFRA was completed together with up to date climate change allowances.
5.374 The Surface Water Management Plan (SWMP)(140) contains more detail and informs and interacts with the Plan by giving action plans and priorities for each area, in line with our proactive approach to flood risk and climate change. It identifies Surface Water Risk Areas (SWRAs) and has an action plan for these and other issues. Additional attenuation measures are required within these areas including decreasing the volume of surface water entering the combined sewer system by managing this on-site or disposing to a watercourse where flood risk would not be increased. The removal of surface water from combined sewers has two benefits - the reduction in downstream sewer flooding risk and the reduction in unnecessary treatment of surface water at sewage treatment works (thereby increasing available capacity). The majority of SWRAs are in the east of the county or around the urban conurbations. Critical Drainage Areas have also been identified and development in these areas will need careful consideration including a Flood Risk Assessment where appropriate.
Flood Risk
5.375 In County Durham flood risk is mainly fluvial, from rivers and watercourses, although we are seeing increasing events of surface water flooding due to climate change and development pressure. The SFRA assesses all sources of flood risk including fluvial, surface water, sewer and highway drainage flooding. National policy is clear that planning policy should minimise vulnerability and provide resilience to impacts arising from climate change and avoid inappropriate development in areas at risk of flooding, which is primarily done through sequential/exception testing in line with National Planning Practice Guidance. Where there is the possibility of any flood risk to a proposed development site, or the potential for flood risk impact on other sites, a site-specific Flood Risk Assessment will be required, once it has passed the sequential and exception test. The sequential test can also be used to inform site layout by locating the most vulnerable elements of a development in the lowest risk areas as well as building in resilience into a sites design for example through raised floor levels or dry pedestrian access routes.
Sustainable Drainage Systems (SuDS)
5.376 Green infrastructure can be an important flood management and flood mitigation mechanism as well as providing benefits for communities, wildlife, biodiversity, ecological networks and helping to reduce the impact of climate change. Similarly SuDS can make a contribution to the green infrastructure provided on a site. If surface water is removed from combined sewers it increases their capacity, therefore reducing the risk of sewer flooding downstream and reducing the unnecessary treatment of surface water at sewage treatment works (thereby increasing available capacity). This is particularly important to development proposed in key SWRAs, as identified in the SWMP.
5.377 SuDS and green infrastructure can also prevent pollution by filtration of surface water run-off thereby contributing to improvements in the quality of watercourses in line with legislation thereby contributing to the Water Framework Directive objectives. The river basin management plan prepared by the Environment Agency is the key over-arching source of information on the water environment including the condition of water bodies and measures to help meet Water Framework Directive objectives. (141) Developers will be encouraged to explore how SuDS within their scheme can achieve reductions to wider catchment flood risk issues where possible. This reduction in flow rate is termed by the industry as ‘Betterment’.
140 https://durhamcc.objective.co.uk/portal/planning/cdpev/ 141 Emerging evidence from the Woodland Trust and Manchester University states that the planting of trees or woods in the right locations can bring about improvements in water quality of 90% and can also help alleviate certain types of flooding.
178 County Durham Plan Preferred Options County Durham Plan Preferred Options
5.378 SuDS developments in the south east of the county may fall within the aerodrome safeguarding zone as detailed in Policy 25 (Safeguarded Areas). Proposals within this zone will need to consider the risk of potential bird strikes and choose appropriate SuDS techniques which will minimise any risks.
Water Quality
5.379 It is important to consider the protection of water resources from pollution particularly when assessing any development that has the potential to adversely affect water quality either above or below ground. The Magnesian Limestone Principal Aquifer underlies the eastern part of the county and is a source of drinking water for both NWL and Hartlepool Water Company. It is therefore vital that this resource is protected. Pollution can affect groundwater for many decades and may be impossible to remove completely, even after the source of the pollution has been cleared up. The NPPF requires pollution prevention in new and existing development.
Sewage and Waste Water Infrastructure
5.380 NWL is the supplier of water and sewerage services for the county, looking after around 136 sewage treatment works. Changes in population distribution and economic growth over the Plan period will increase demand on sewage treatment and the disposal of waste water. We have been working closely with NWL and the Environment Agency to ensure there is adequate and timely provision of treatment works in areas identified for growth in the Plan. This is a key part of the IDP and the detail is contained in the WCS.
5.381 Priority should be given, where possible, to accommodate any additional flows within existing sewage treatment works. Where new sewage treatment works are required there will need to be a balance between meeting higher discharge standards, the environmental benefits of the development and the protection of the existing environment and amenity.
5.382 Non-mains drainage systems, such as package treatment plants and septic tanks should only be employed in non-sewered areas. where they are required, careful consideration of their siting and design will be required to ensure that there is no adverse impact upon ground water, water quality or existing ecosystems. It is advised that any new development proposing the use of a non-mains foul drainage system should be supported by a Foul Drainage Assessment (FDA1) as a mimimum. The form provides the information required to assess the development's impact, however in certain instances further justification and/or assessment may be required to ensure no detriment to the environment or quality of receiving water bodies.
5.383 Policy 33 (Amenity and Pollution) highlights that sensitive receptors, such as dwelling houses, should not be built in close proximity to existing sewage treatment works as this is likely to lead to amenity issues arising. A buffer has been provided in the policy to overcome these issues.
5.384 Increased demand for sewage treatment and higher water quality standards will mean that in the future there will be additional sludge (a by-product of the process) to be disposed of. Proposals for the recovery of sludge to produce beneficial end products will be encouraged where they can be located without significant adverse effects on local communities or the environment.
5.385 Whilst this policy is applicable to all forms of development, a policy addressing the specific requirements for Minerals and Waste proposals (the disposal of sewage sludge) will be contained in the future Minerals and Waste Policies and Allocations Development Plan Document. The policy approach to the Durham Coast is addressed separately in Policy 39 (Durham Coast and Heritage Coast).
County Durham Plan Preferred Options 179 County Durham Plan Preferred Options
Works Carried Out To or Near a Watercourse
5.386 Any works carried out to, or near, a watercourse, either open or closed, may require Water Course Consent from the LLFA. Works within 8m of a main river will require a Flood Risk Activities Permit from the Environment Agency.
5.387 Any culverting, de-culverting or works affecting the flow of a watercourse require the prior written consent of either the Environment Agency (for main rivers), or the council (for ordinary watercourses) under the terms of the Land Drainage/Water Resources Act 1991 and Flood and Water Management Act 2010. These regulatory bodies seek to avoid culverting and their consent for such works will not normally be granted except as a means of access.
How will the Policy be monitored?
Indicator:
1. Number of water bodies which show improvement as a direct consequence of new development
2. Percentage of major developments which include SuDS
Target:
1. An increasing trend
2. 100%
Question 45
This is our preferred policies. Do you have any comments?
Policy 39 - Durham Coast and Heritage Coast
Policy 39
Durham Heritage Coast and Wider Coastal Zone
The council will seek to protect and enhance the Durham Heritage Coast and wider Coastal Zone. Development proposals within the Durham Heritage Coast or Wider Coastal Zone, as defined on the policies map, or that have the potential to individually or cumulatively impact on their setting must:
a. Be appropriate in terms of scale, massing and design;
b. Not give rise to adverse impacts upon the tranquil or isolated character of the area;
180 County Durham Plan Preferred Options County Durham Plan Preferred Options
c. Not increase the risk from climate change, flooding, erosion or land instability;
d. Demonstrate consistency with the protection and conservation of its natural assets and heritage features; and
e. Not be inconsistent with the purposes of the Heritage Coast and objectives of the Heritage Coast Management Plan.
Development proposals within, or within the setting of, the Durham Heritage Coast or wider Coastal Zone which meet the above criteria and support appropriate public access, enjoyment and understanding of this resource will be permitted. Small scale proposals for agriculture, forestry, fisheries or to meet community needs will be supported where appropriate.
Other types of development within, or within the setting of, the Durham Heritage Coast or wider Coastal Zone will only be permitted where they meet criteria (a) to (e) above and it can be clearly demonstrated that there are overriding social, environmental and/or economic benefits which will be derived from that particular proposal and that it cannot be accommodated outside of the coastal zone.
The council will also support:
Appropriate enhancement, management and restoration of the Heritage Coast and wider Coastal Zone having regard to the Heritage Coast Management Plan; and
The extension of the Durham Heritage Coast to include the area around Dene Mouth, Blackhall.
5.388 The coastline of County Durham is a unique asset which comprises distinctive bays and headlands carved from the magnesian limestone and overlying clays unique to this area. The Durham coast stretches over 17 kilometres from the border with the City of Sunderland at Ryhope Dene in the north to Hartlepool south of Crimdon Dene. The majority of the area up to 1 kilometre inland from the cliff edge is undeveloped other than the port and coastal town of Seaham and Crimdon Caravan Park where development extends to the high water mark.
5.389 The Durham coast is internationally important for nesting and migratory birds and rare limestone grasslands, almost its entire length is designated as SAC, SSSI, SPA or Ramsar. Important species present include the Purple Sandpiper, Little Tern and the Durham Argus butterfly.
5.390 The limits of the Coastal Zone extend both seaward and landward from the coastline, reflecting the geographical extent of natural coastal processes and also human activities related to the marine environment. For the purposes of planning on the coast, the coastal zone is defined as the area of land between the mean low water mark on the seaward side and the coastal railway line, from the county boundary with Hartlepool to Hawthorn Junction south of Dawdon. To the north of this point, the coastal zone is defined as the cliff line as far as the Seaham Hall car park and then the B1287, as shown on the policies map. Development proposals in this area should only be undertaken on the basis of maintaining and enhancing its environmental capital in accordance with the principles of the Marine Policy Statement and other principles of sustainable development. Development proposals relating to minerals and waste will be assessed through the appropriate minerals and waste policies which recognise the importance and level of protection afforded to this area.
5.391 The main purposes of the Heritage Coast are:
County Durham Plan Preferred Options 181 County Durham Plan Preferred Options
To conserve, protect and enhance the natural beauty of the coastline, their terrestrial, coastal and marine flora and fauna and their heritage features;
To encourage and help the public to enjoy, understand and appreciate these areas;
To maintain and improve the environmental health of inshore waters affecting heritage coasts and their beaches through appropriate environmental management measures; and
To take account of the needs of agriculture, forestry and fishing, and of the economic and social needs of the small communities on the coast.
5.392 Coastal management and planning is a strategic issue which requires an integrated approach. This is more formally termed Integrated Coastal Zone Management (ICZM). Accordingly the council works closely with partners and neighbouring planning authorities and the Marine Management Organisation in planning and managing the coastal area.
5.393 The entirety of the Durham coastline has been assessed by the Shoreline Management Plan 2(142)as being at no significant risk of Coastal Change other than the specific area referred to as Red Acre Cliffs (near the Londonderry building, Seaham). National policy is clear that the planning system should reduce risk from coastal change by avoiding inappropriate development in vulnerable areas or adding to the impacts of physical changes to the coast.
5.394 The National Planning Policy Framework (NPPF) and the Marine and Coastal Act (2009) require local authorities to maintain, enhance and protect the character of the undeveloped coast, especially where it is defined as Heritage Coast. In this regard strict control of development up to the edges of the delineated coastal zone is of particular importance in preserving its special setting and in maintaining views out of the coastal area. Regard should be had to the principles of landscape and seascape character assessment as development adjacent to the coastal zone is a key factor which impacts upon its quality and the visitor experience. This is particularly important for the setting of the Heritage Coast and also the possibility of development affecting processes on the coast or increasing flood risk.
5.395 The Durham Heritage Coast Partnership delivers improvements to the coast via the Durham Heritage Coast Management Plan, which is currently being updated, and aims to balance enhancement with conservation, whilst taking account of the economic and social needs of the area. It is important that the type and location of recreational activities is sympathetic to the sensitive habitats and species which thrive there. In particular, the presence of protected bird species will constrain certain forms of development in this location. The Partnership is also currently seeking to extend the Heritage Coast status for the Denemouth area of Castle Eden Dene.
142 River Tyne to Flamborough Head (SMP2).
182 County Durham Plan Preferred Options County Durham Plan Preferred Options
How will the Policy be monitored?
Indicator:
1. Appeals upheld contrary to this policy
2. Status of proposed extension of Heritage Coast around Dene Mouth
Target:
1. None upheld at appeal
2. Completed by 2035
Question 46
This is our preferred policy. Do you have any comments?
Conserving and enhancing the natural and historic environment
5.396 County Durham's environment and well being are fundamental to the quality of life of the people who live and work in the county and to the success of its economy. Environmental considerations are therefore fundamental to all policy areas addressed in the Plan. The quality and diversity of the built and natural environment is amongst the county's major assets.
5.397 County Durham has a wealth of attractive natural and historic assets which present unique opportunities for residents, businesses and visitors. The Plan must therefore successfully balance the protection and enhancement of these assets with the requirement for new development to meet our need for new homes and jobs. New development in and around our historic towns and villages must complement their built heritage and natural landscapes. Across the county development pressures must not compromise the natural and historic assets that make them attractive and valuable.
5.398 The National Planning Policy Framework (NPPF) identifies conserving and enhancing the natural environment as a core land-use principle and looks to recognise the intrinsic character and beauty of the countryside, protect and enhance valued landscapes, halt the overall decline in biodiversity and reduce the risks of pollution, land instability and contamination.
A Positive Strategy for the Historic Environment
5.399 The NPPF also requires the council to have a positive strategy for the conservation, enhancement and enjoyment of the historic environment. This strategy is contained in a number of policies throughout the Plan including Policy 46 (Historic Environment) and Policy 31 (Sustainable Design in the Built Environment).
5.400 The strategy also relates to the actions that the council has committed to undertaking including:
County Durham Plan Preferred Options 183 County Durham Plan Preferred Options
The adoption of conservation area character appraisals and management proposals for all of the county's 93 conservation areas. These will be kept under review and where appropriate additional areas included or existing areas removed;
Targeting areas and properties which are identified through character appraisals and seeking to influence change in a proactive way, wherever opportunities arise;
Supporting the improved condition of Heritage at Risk through identifying and facilitating works, resources and providing advice and where appropriate using powers of enforcement and repair;
Taking considered and timely enforcement action to protect designated heritage assets where unauthorised works have taken place;
Managing, promoting and delivering an annual partnership programme of Heritage Open Days;
Developing proposals for external bidding;
Contributing to the revised World Heritage Site Management Plan; and
Improved curation and accessibility of the county's Historic Environment Record (HER).
Policy 40 - North Pennines Area of Outstanding Natural Beauty
Policy 40
North Pennines Area of Outstanding Natural Beauty
The North Pennines Area of Outstanding Natural Beauty (AONB) will be conserved and enhanced. In making decisions on development great weight will be given to conserving landscape and scenic beauty.
Major developments(143) will only be permitted in the AONB in exceptional circumstances and where it can be demonstrated to be in the public interest, in accordance with national policy.
Any other development in or affecting the AONB will only be permitted where it is not, individually or cumulatively, harmful to its special qualities or statutory purposes.
Any development should be designed and managed to the highest environmental standards and to have regard to the objectives of the North Pennines AONB Management Plan, and to the guidance given in the North Pennines AONB Planning Guidelines and the North Pennines AONB Building Design Guide as material considerations.
5.401 Large parts of the North Pennines are designated as an Area of Outstanding Natural Beauty (AONB). The Countryside and Rights of Way Act 2000 places a statutory duty on all local authorities to have regard to the purpose of conserving and enhancing natural beauty when discharging any function which could affect land in an AONB, and reaffirms the purposes of designation as follows:
The primary purpose of designation is to conserve and enhance natural beauty;
143 As defined in the Glossary.
184 County Durham Plan Preferred Options County Durham Plan Preferred Options
In pursuing the primary purpose of designation, account should be taken of the needs of agriculture, forestry, other rural industries and of the economic and social needs of local communities. Particular regard should be paid to promoting sustainable forms of social and economic development that in themselves conserve and enhance the environment; and
Recreation is not an objective of designation, but the demand for recreation should be met so far as this is consistent with the conservation of natural beauty and the needs of agriculture, forestry and other uses.
5.402 The National Planning Policy Framework (NPPF) confirms that AONBs, along with National Parks and the Broads, have the highest status of protection in relation to landscape and scenic beauty. It states that great weight should be given to conserving landscape and scenic beauty in AONBs, and that the conservation of wildlife and cultural heritage are also important considerations in these areas.
5.403 The North Pennines AONB is the second largest AONB in the United Kingdom, covering almost 2,000 km2. Approximately one third of the AONB lies within County Durham, the remainder lying within Cumbria and Northumberland and a small part in North Yorkshire. The North Pennines is acknowledged to be one of England's most remote, wild and tranquil places, with nationally and internationally important landscapes, biodiversity, geodiversity and cultural heritage, dark skies free of light pollution and little artificial noise. 36% of the AONB is designated SSSI, and the area includes 30% of England's blanket bog and 40% of the UK's upland hay meadows. The North Pennines provides a wide range of ecosystems goods and services for the county and wider society, such as carbon storage, flood risk management, clean water, food and timber production. The whole of the AONB is also designated as a UNESCO European/Global Geopark. In addition to being a landscape for which we share a national responsibility, the AONB is an asset of great strategic importance to the county both environmentally and economically.
5.404 The AONB is a living, working landscape whose character has been created and maintained by human activity over the generations. Sustaining that character will depend on careful stewardship of the land, and careful decision making about future development. Major development generally can and should be located outside of AONBs. Development that meets the needs of local communities and visitors should be accommodated provided that it protects the AONB's special qualities for the benefit of all.
5.405 This policy recognises the importance and sensitivity of the AONB and the need to conserve and enhance it as an environmental and economic asset. It recognises that varying degrees of protection should be afforded to international, national and locally designated sites and aims to protect its special qualities to an appropriate degree. Policies on Renewable Energy, Minerals, Waste and other developments including criteria for the protection of the AONB are contained in the relevant sections of the Plan, as are policies on other environmental assets such as Biodiversity, Geodiversity and Cultural Heritage.
5.406 The AONB is covered by a statutory Management Plan (144) produced by the North Pennines AONB Partnership on behalf of the five relevant local authorities. This document is intended to 'formulate the policies of local authorities in relation to their AONB' (Countryside and Rights of Way Act 2000) and it provides a framework and programme of action for the area's conservation and enhancement. The AONB Partnership and constituent local planning authorities have also produced a number of guidance documents including the North Pennines AONB Planning Guidelines and the North Pennines AONB Building Design Guide (145), which give greater expression to the more
144 http://www.northpennines.org.uk/management-plan-2014-2019/ 145 http://www.northpennines.org.uk/publications/north-pennines-aonb-planning-guidelines/
County Durham Plan Preferred Options 185 County Durham Plan Preferred Options
broadbrush policies in local planning documents. These documents have been endorsed by the council and are therefore material considerations when considering development proposals. This will include any successor or replacement documents endorsed by the council during the life of the Plan.
How will the Policy be monitored?
Indicator:
1. Appeals upheld contrary to this policy
Target:
1. None upheld at appeal
Question 47
This is our preferred policy. Do you have any comments?
Policy 41 - Landscape Character
Policy 41
Landscape Character
Proposals for new development will not be permitted where they would cause unacceptable harm to the character, quality or distinctiveness of the landscape, or to important features or views.
Development proposals should have regard to the County Durham Landscape Character Assessment and County Durham Landscape Strategy and contribute, where possible, to the conservation or enhancement of the local landscape.
5.407 The Durham landscape is one of enormous contrast and diversity. From its western boundary high in the summit ridges of the North Pennines, to the limestone cliffs of the North Sea coast, remote moorlands and pastoral dales give way to fertile settled farmlands. This diversity is a product of both natural and human influences. The varied rocks, landforms and soils of the county and differences in climate between the exposed uplands and sheltered lowlands have influenced both the natural flora of the landscape and the way it has been populated, managed and exploited by its people over the centuries.
5.408 The intrinsic character and beauty of the countryside are important both to the quality of life of local communities and the economic prosperity of the county as a whole. In the past there has been an emphasis on identifying and protecting high quality landscapes. In recent years there has
186 County Durham Plan Preferred Options County Durham Plan Preferred Options
been an increasing recognition that all landscapes matter and that their sensitivity to development depends on their character. This character-led approach to all landscapes, of whatever quality, whether urban or rural, built or natural, is fundamental to the European Landscape Convention, of which the UK is a signatory.
5.409 The character of England's landscapes is mapped at a strategic level by Natural England who identify 159 National Character Areas (NCA). A NCA profile, which provide descriptive material on the character of the landscape and guidance on management, is produced for each of the six NCAs in County Durham. The County Durham Landscape Character Assessment (CDLCA) works within this framework, providing further detail about the character of the county's landscape at three levels, from the strategic to the local. The County Durham Landscape Strategy (CDLS) analyses the issues affecting the landscape and sets out objectives and priorities for conservation and improvement. It identifies broad Landscape Conservation Priority Areas and Landscape Improvement Priority Areas. The CDLCA and CDLS form the basis of the County Durham Landscape Guidelines (CDLG) which cover a range of topics including trees, woodlands and forestry, hedges and grasslands and includes development and land management guidelines for broad landscape types(146).
5.410 The National Planning Policy Framework (NPPF) advises that the planning system should contribute to and enhance the natural and local environment by protecting and enhancing valued landscapes. One indicator of value can be designation, either at a national or local level. Parts of the county are designated nationally as Area of Outstanding Natural Beauty (AONB) (see Policy 40 above). Outside of the AONB parts of the county have been identified in the past as Areas of High Landscape Value (AHLV) in local plans.
5.411 Landscape designation is not a definitive indicator of value. The Guidelines for Landscape and Visual Impact Assessment (GLVIA) (147) advises that a stated strategy of landscape conservation can also be a good indicator of value (paragraph 5.27). The CDLS identifies Landscape Conservation Priority Areas which are such an indicator. The GLVIA also advises that landscape value can be affected by a range of factors such as landscape condition, scenic quality, rarity, representativeness, conservation interest, recreational value, perceptual qualities and historical associations. While these attributes can be considered on a case by case basis when assessing individual proposals, the council will investigate whether further evidence can be provided to identify how they vary across the county’s landscapes. At this stage it is proposed to adopt a character-led approach of this kind rather than identify local landscape designations.
5.412 The NPPF also advises that local planning authorities should set criteria based policies against which proposals for any development on or affecting landscape areas will be considered. This policy contains the criterion of unacceptable harm to the character, quality or distinctiveness of the landscape, or to important features or views. Whether harm is considered unacceptable will depend partly on the significance of the effects of development on those attributes, and partly on the extent to which the benefits of the development outweigh that harm in the balance of considerations. These are matters that need to be assessed on a case by case basis. The policy refers to important features and views. Important features will include those that are particularly characteristic of, and make a notable contribution to, the character, quality or distinctiveness of the local landscape. Important views will include notable views of landscapes, landscape features or landmarks. These will need to be evaluated on an individual basis.
5.413 The NPPF notes the desirability of new development making a positive contribution to local character and distinctiveness and advises that permission should be refused for development of poor design that fails to take the opportunities available for improving the character and quality of an area and the way it functions. Development can make a positive contribution to the landscape either directly
146 These documents can be found on the Durham Landscape website athttp://www.durhamlandscape.info/Pages/Home.aspx. 147 Guidelines for Landscape and Visual Impact Assessment. Landscape Institute and Institute of Environmental Management and Assessment (2013) LINK?
County Durham Plan Preferred Options 187 County Durham Plan Preferred Options
through its design, through off-site works, or though financial contributions supporting the delivery of landscape improvements in the surrounding area. The CDLCA is the main source of information on local landscape character and distinctiveness. The CDLS is the main source of information on opportunities for improving character and quality. Parts of the county are covered by landscape scale partnerships such as the statutory North Pennines AONB Partnership, the Durham Heritage Coast Partnership and the County Durham Hedgerow Partnership, together with a number of shorter term or more localised partnership projects. The plans and strategies of these partnerships can provide additional information on opportunities to improve the character and quality of the local landscape, and can provide mechanisms for delivering off-site mitigation.
How will the Policy be monitored?
Indicator:
1. Appeals upheld contrary to this policy
Target:
1. None upheld at appeal
Question 48
This is our preferred policy. Do you have any comments?
188 County Durham Plan Preferred Options County Durham Plan Preferred Options
Broad Landscape Types
County Durham Plan Preferred Options 189 County Durham Plan Preferred Options
National Character Boundaries and Landscape Conservation and Improvement Priority Areas
Policy 42 - Trees, Woodlands and Hedges
Policy 42
Trees, Woodlands and Hedges
Trees
Proposals for new development will not be permitted that would result in the loss of, or damage to, trees of high landscape, amenity or biodiversity value unless the need for, and benefits of, the proposal clearly outweigh the harm. Where development would involve the loss of individual aged or veteran trees that lie outside ancient woodland, it will be refused unless the need for, and benefits of, development in that location would clearly outweigh the loss.
Proposals for new development will be expected to retain existing trees where possible and integrate them fully into the design having regard to their management requirements and growth potential.
Where trees are lost, suitable replacement planting, maintenance and management arrangements, will be required within the site or the locality.
190 County Durham Plan Preferred Options County Durham Plan Preferred Options
Where consent is given to carry out works to trees in Conservation Areas or that are covered by a Tree Preservation Order, it will normally be subject to conditions requiring compliance with the council's adopted Tree Management Plan (or any subsequent revisions).
Woodlands
Proposals for new development will be expected to retain existing woodlands and integrate them fully into the design having regard to their future management requirements. Development will not be permitted that would result in the loss of woodland unless the benefits of the proposal clearly outweigh the loss and suitable replacement planting, either within or beyond the site boundary, can be undertaken.
Proposals for new development will not be permitted that would result in the loss, fragmentation, isolation or other deterioration of ancient woodland, as shown on the policies map, unless the need for, and benefits of, the development in that location clearly outweigh the harm. In these exceptional circumstances appropriate compensation will be required. Proposals affecting ancient woodland (including planted ancient woodland sites) not previously identified as such, will be subject to the same considerations.
Hedges
Proposals for new development will not be permitted that would result in the loss of hedges of high landscape, heritage, amenity or biodiversity value unless the need for, and benefits of, the development clearly outweigh the loss.
Proposals for new development will be expected to retain existing hedgerows where appropriate and integrate them fully into the design having regard to their management requirements.
Where any hedges are lost, suitable replacement planting or restoration of existing hedges, including management and maintenance arrangements will be required within the site or the locality.
5.414 Trees, woodlands and hedges make an important contribution to the beauty, diversity and distinctiveness of our rural landscapes and the beauty and liveability of our townscapes. Tree and woodland canopies create shelter and shade, intercept rainfall and airborne pollutants and regulate the movement of water through river catchments, reducing soil erosion and the leaching of pollutants into surface and ground waters. This helps to regulate local temperatures and climate change impacts. Woodland ecosystems are a key component of the county's biodiversity providing habitats for both rare and common species. Protecting and conserving the county’s woodlands and substantially increasing woodland cover are important objectives of the County Durham Landscape Strategy (2008).
5.415 Trees and woodlands take many years to mature, ancient woodlands and aged or veteran trees in particular are irreplaceable. Ancient semi-natural woodlands make up only around 1.3% of the county and contain plant and animal communities that survive from the very distant past. Natural England has produced an inventory of ancient woodlands which the council has updated on the basis of more recent information. This includes ancient semi-natural woodlands (ASNW) and planted ancient woodland sites (PAWS) which are often important for the conservation of woodland species where they persist in the under-storey. ASNW and PAWS are shown as Ancient Woodland on the policies map but this is not definitive as many woodlands, and particularly small woodlands, are not picked up by the inventory and are only found to be ancient after detailed survey. Where the council considers that a woodland previously unidentified as such is likely to be ancient woodland a detailed survey will be required as part of the application process. Where development proposals lie close to ancient woodlands, including planted or otherwise damaged ancient woodlands, there may be opportunities
County Durham Plan Preferred Options 191 County Durham Plan Preferred Options
to carry out buffering, restoration or enhancement works in mitigation of the impact(s). These works could be secured by planning obligations or other agreements, in accordance with Policy 27 (Developer Contributions).
5.416 Aged and veteran trees are those which, because of their great age, size or condition are of exceptional wildlife, landscape or cultural value. The National Planning Policy Framework (NPPF) says that planning permission should be refused for development resulting in the loss or deterioration of irreplaceable habitats, including ancient woodland, and the loss of aged or veteran trees found outside ancient woodland, unless the public benefit would clearly outweigh the loss or deterioration of habitat.
5.417 Other trees of high landscape, amenity or biodiversity value include rare native trees, trees covered by Tree Preservation Orders (TPO), mature trees that make a notable contribution to the visual amenity of a landscape or townscape, and trees of significant historical or commemorative importance. The value of individual trees needs to be assessed on an individual basis.
5.418 Mature trees, woodlands and hedges are sensitive to the impacts of development, either directly through their removal or indirectly through the impacts of construction. Due to the length of time and the cost taken to replace mature features, and the contribution they can make to the quality of development, they should be retained and protected where possible.
5.419 Where trees within or adjacent to a site could be affected by development, a full tree survey and arboricultural implications assessment to BS 5837 (the British Standard for Trees) will be required as part of the planning application. This should be carried out at a sufficiently early stage to inform the design of the development. The implementation of any protective measures it identifies, will be secured by the use of planning conditions.
5.420 Mature hedges can bring character and maturity to a new development and should generally be retained, although in some circumstances there can be merit in not retaining lower value hedges if this would compromise the quality of design. Consideration needs to be given to the growth potential and shading characteristics of trees to ensure that they are properly integrated into the new landscape without creating future conflicts and pressure for removal. Consideration also needs to be given to the growth potential and management requirements of hedges. Where the loss of trees and hedges is unavoidable they should be replaced with suitable new planting either within the site or in the locality if this is more appropriate. In the case of hedges the renovation of existing hedges in the wider area can be an appropriate form of mitigation. Development can make a positive contribution to the tree resource in the area through on or off site planting, and particularly where the site lies in a woodland priority area identified in the County Durham Landscape Strategy (148) Technical guidance on the planting of trees, woodlands and hedges and the selection of species can be found in the County Durham Landscape Guidelines.(149)
5.421 The council's Adopted Corporate Tree Management Policy sets out our approach to the management of trees on our own land. In dealing with applications affecting, or works to, trees in Conservation Areas or protected by TPO, the council will be guided by the principles set out in that document (or any subsequent revisions) and particularly those sections dealing with tree care and damage caused by trees.
148 Durham Landscape Strategy can be found here: http://www.durhamlandscape.info/ 149 County Durham Landscape Guidelines can be found here: http://www.durhamlandscape.info/article/10011/County-Durham-Landscape-Guidelines
192 County Durham Plan Preferred Options County Durham Plan Preferred Options
How will the Policy be monitored?
Indicator:
1. Net loss of trees/woodlands/hedges as a result of new development
2. Loss of Ancient Woodland (Hectares)
Target:
1. No net loss of trees/woodlands/hedges
2. No loss of Ancient Woodland
Question 49
This is our preferred policy. Do you have any comments?
Policy 43 - Biodiversity and Geodiversity
Policy 43
Biodiversity and Geodiversity
5.422 Proposals for new development will not be permitted if significant harm to biodiversity or geodiversity resulting from the development cannot be avoided, or adequately mitigated, or, as a last resort, compensated for.
5.423 Proposals for new development will be expected to conserve biodiversity and geodiversity to ensure no net loss, and where possible net gain.
5.424 Proposals for new development should incorporate measures to enhance biodiversity.(150) Measures should be appropriate, consistent with the biodiversity of the site and contribute to the resilience and coherence of local ecological networks.
5.425 Development proposals where the primary objective is to conserve or enhance biodiversity will be permitted, where they accord with other relevant policies in the Plan.
5.426 Development proposals which are likely to have a significant adverse impact on peatlands will not be permitted unless exceptional circumstances can be demonstrated. Such proposals should contribute, where possible, to their restoration.
150 This can be achieved by contributing to the consolidation and development of local ecological networks, and the implementation of the biodiversity and geodiversity action plans and management plans of local partnerships, including working across local authority boundaries.
County Durham Plan Preferred Options 193 County Durham Plan Preferred Options
5.427 Biodiversity, the variety of life on earth, is at the heart of a more sustainable future for the county. Retention and enhancement of biodiversity is a key measure of sustainability. The National Planning Policy Framework (NPPF) confirms the Government’s commitment to the conservation and enhancement of the natural environment, including the protection and enhancement of biodiversity and the benefits of ecosystems. The Natural Environment and Rural Communities (NERC) Act 2006 places a duty on all local authorities to have regard to the conservation of biodiversity and requires the Secretary of State to publish a list of priority species and habitats for conservation. The government has laid out its targets for wildlife and ecosystem services in 'Biodiversity 2020: A strategy for England’s wildlife and ecosystem services'(151) and planning policy should contribute to the delivery of its targets.
5.428 The retention and enhancement of ecosystems is essential for the maintenance and recovery of priority species and habitats. This will enable their natural migration and spread in response to climate change, as well as providing opportunities for landscape enhancement, creating an attractive environment in which to live, work and play. Proposals for new development will be expected as a minimum to ensure no net loss of biodiversity and geodiversity.
5.429 Proposals will also be expected to actively enhance biodiversity in order to provide net gains. In circumstances where it is considered that the enhancement of biodiversity might render the proposal unviable, the developer will be required to demonstrate to the council's satisfaction, that this is the case.
5.430 The re-use of previously developed land for new development makes a major contribution to sustainable development. However, brownfield land can support an extremely rich diversity of wildflowers and animals, and has its own UK BAP Priority Habitat ‘Open Mosaic Habitats and Previously Developed Land'. Where such sites have significant biodiversity or geological interest of recognised local importance, this interest should be retained or incorporated into any development.
5.431 Given the important role peatlands play as carbon sinks, there should be no further loss of near-natural peatlands and all recoverable peatlands should be restored to a peat forming state, resilient to climate change and with long-term safeguards. The North Pennines AONB Partnership have had success in restoring significant areas of peatland, through its Peatscapes Project, with the blocking of approximately 1000km of moorland grips by 2012, this will hydrologically restore over 1000 hectares of blanket bog.
5.432 The location and design of new development should be informed by the most up-to-date biodiversity data available. It will be expected that biological data gathered to support the development process will be submitted to the local biodiversity record office. All development proposals affecting International Sites will be considered against Policy 44 (Internationally Designated Sites).
How will the Policy be monitored?
Indicator:
1. Appeals upheld contrary to this policy
Target:
1. None upheld at appeal
151 https://www.gov.uk/government/uploads/system/uploads/attachment_data/file/69446/pb13583-biodiversity-strategy-2020-111111.pdf
194 County Durham Plan Preferred Options County Durham Plan Preferred Options
Question 50
This is our preferred policy. Do you have any comments?
Policy 44 - Internationally Designated Sites
Policy 44
Internationally Designated Sites
Development that has the potential to have an effect on an internationally designated site/sites, (including all development within 0.4km a shown on Map B of the policies map document), either individually or in combination with other plans or projects, will need to be screened in the first instance to determine whether significant effects on the site are likely and, if so, will be subject to an Appropriate Assessment.
Development will be refused where it cannot be ascertained, following Appropriate Assessment, that there would be no adverse effects on the integrity of the site, unless the proposal is able to pass the further statutory tests of ‘no alternatives’ and ‘imperative reasons of overriding public interest’ as set out in Regulation 62 of the Conservation of Habitats and Species Regulations 2010 (as amended). In these exceptional circumstances, where these tests are met, appropriate compensation will be required in accordance with Regulation 66.
Where development proposals would be likely to lead to an increase in recreational pressure upon internationally designated sites, a Habitats Regulations screening assessment and, where necessary, a full Appropriate Assessment will need to be undertaken to demonstrate that a proposal will not adversely affect the integrity of the site. Where a relevant strategy, supplementary planning document and/or relevant management plan identifies effective avoidance or mitigation opportunities, these may be utilised to obviate any likely effects and will therefore avoid the need for an Appropriate Assessment.
Land identified and/or managed as part of any mitigation or compensation measures should be maintained in perpetuity. Development proposals which have an adverse impact on mitigation or compensation measures will not be allowed.
The Legal Context and Responsibility for Appropriate Assessment
5.433 The need for Appropriate Assessment (AA) is set out within Article 6 of the EC Habitats Directive 1992 (92/43/EEC). The Directive is given domestic effect by the Conservation of Habitats and Species Regulations 2010 (as amended) and Internationally Designated Sites are subject to these regulations (and any successor or replacement regulations during the life of the Plan). Under these Regulations, land use plans must be subject to AA if they are likely to have a significant adverse effect on a Natura 2000 site (Special Areas of Conservation (SACs) and Special Protection Areas (SPAs)). It is Government policy(152) for sites designated under the Convention on Wetlands of
152 Paragraph 118 of National Planning Policy Framework (NPPF).
County Durham Plan Preferred Options 195 County Durham Plan Preferred Options
International Importance (Ramsar sites); equivalent sites (potential SPAs and possible SACs) and sites identified or required as compensatory measures for adverse effects on European sites to be treated as having equivalent status to Natura 2000 sites. As such, AA should also cover these sites.
5.434 Where development proposals may impact, either directly, indirectly, or in combination on internationally designated sites, a screening assessment may be required to determine whether there is a need for AA. Although it is the responsibility of the competent authority (the council) to undertake the AA, developers must provide the council with the information required for the purposes of the assessment or to enable them to determine whether an AA is required. This may require developers to fund specialist surveys and evidence based reports. Where mitigation or compensation is required this will be dealt with through a Section 106 agreement.
The Current Position
5.435 Certain internationally designated sites are already experiencing recreational and urbanisation impacts on site integrity. These are:
Northumbria Coast SPA/Ramsar site;
Teesmouth and Cleveland Coast SPA/Ramsar site; and
Durham Coast SAC.
Future Development
5.436 In applying this policy the council has identified a buffer zone that extends 0.4km from the perimeter of the SPA/SAC/Ramsar (measured as the crow flies) within which development is likely to have significant effects on the site. In this zone permission maybe granted, provided it is demonstrated that the proposal will not adversely affect the integrity of the site in question(153).
5.437 Where it can be shown that proposals to mitigate the effects of development would avoid or overcome an adverse impact on the integrity of the site in question, or its qualifying features, planning permission will be granted and the mitigation proposals secured by planning condition and/or Section 106 agreement.
5.438 It should be noted that outside the 0.4km zone, developments may still have the potential to impact upon internationally designated sites. In coastal settlements, these may include residential developments which increase the number of inhabitants and hence increase recreational pressure, and non-residential developments which are likely to increase visitor numbers to Durham’s Coast. Evidence has also shown that the majority of visitors accessing the coast come from within 6km, therefore any development that will increase visitor pressure within this buffer is unlikely to be screened out and will be subject to AA to demonstrate that the proposal can be implemented without causing adverse effects to the integrity of one or more internationally designated coastal site(s). (154) Alternatively, developers of such proposals can provide, or contribute towards, mitigation measures as outlined in relevant plans and strategies such as the Heritage Coast Management Plan, which includes measures to minimise impacts on the Heritage Coast by existing users and those from the new developments, including the naturalisation and enhancement of underused green spaces. There is further guidance available in the Council's adopted 'Habitat Regulations Assessment: Developer Guidance and Requirements in County Durham - October 2017' document. (155)
153 Please refer to the Habitats Regulation Assessment of the County Durham Plan for the reasoning behind the establishment of these zones. 154 These thresholds may change in response to ongoing monitoring and evidence collation. 155 HRA guidance can be found at https://www.durham.gov.uk/media/22977/HRA-Developer-Guidance-and-Requirements-in-County-Durham
196 County Durham Plan Preferred Options County Durham Plan Preferred Options
Exceptional Circumstances
5.439 Regulation 62 of the Habitats Regulations(156) permits the approval of plans or projects where there is a negative assessment under certain exceptional circumstances. In accordance with Regulation 62, development proposals which would have a significant impact upon internationally designated sites will only be permitted if they can demonstrate:
That there are no suitable alternative locations for development;
That all forms of mitigation (rather than compensation) have been fully considered;
That adequate compensatory measures to maintain the overall ecological coherence of the Natura 2000 network are in place (or at least could be put in place and will be delivered in advance of any harm caused to a site); and
That there are ‘imperative reasons of overriding public interest’. In the case where the site hosts a priority natural habitat or species (as defined in Article 1 of the Habitats Directive and listed in Annexes I and II), only reasons relating to human health, public safety or beneficial consequences of primary importance to the environment, can be considered, unless the competent authority has sought and had regard to an opinion from the European Commission. For European sites that do not host an Annex I or priority habitat or species it would also be possible to consider projects which provide long term, large scale economic benefits.
How will the Policy be monitored?
Indicator:
1. Number of applications approved within 400m of internationally designated sites
2. Appeals upheld contrary to the this policy
Target:
1. No applications approved without imperative reasons of overriding public interest
2. None upheld at appeal
Question 51
This is our preferred policy. Do you have any comments?
156 Which transposes into UK law the requirement of Article 6(4) of the Habitats Directive.
County Durham Plan Preferred Options 197 County Durham Plan Preferred Options
Policy 45 - Protected Species and Nationally and Locally Protected Sites
Policy 45
Protected Species and Nationally and Locally Protected Sites
All development proposals in, or which are likely to adversely impact upon, any of the following designations (where not a component of an internationally designated site):
Sites of Special Scientific Interest
National Nature Reserves
Local Sites (Geology and Wildlife)
Local Nature Reserves (LNRs)
will not be permitted unless it can be demonstrated that the benefits of development in that location would:
a. Significantly and demonstrably outweigh the adverse impact; and
b. Make a significant contribution to the management of the site, the protection of species, the creation of new habitats or the creation of local ecological networks in perpetuity.
In relation to protected and priority species and their habitats all development which, alone or in combination, has a likely adverse impact on the ability of species to survive, reproduce and maintain or expand their current distribution will not be permitted unless:
c. Adequate appropriate mitigation/compensation can be provided in perpetuity; and
d. Where the species is a European protected species, the proposal also meets the licensing criteria (the 3 legal tests) of over riding public interest, no satisfactory alternative and favourable conservation status.
New development should seek to create new appropriate habitats supporting local protected and priority species.
5.440 Durham's natural environment is one of its greatest assets and includes a particularly large proportion of the UK's biodiversity, including some of Europe and the UK's most significant sites which are protected by national policy and national and European legislation (as detailed in Policy 44 (Internationally Designated Sites)). However the valuable natural environment includes not only internationally protected sites, but also national and local sites such as Sites of Special Scientific Interest, National Nature Reserves, Local Nature Reserves, Local Wildlife Sites and Local Geological Sites, as well as other features of nature conservation value.
5.441 Whilst it is recognised that the legal protection given to local sites is less robust than that given to European Protected Sites and SSSIs the biodiversity value is just as great and the National Planning Policy Framework (NPPF) requirement to minimise impact and to provide net gains for
198 County Durham Plan Preferred Options County Durham Plan Preferred Options
biodiversity applies equally across all protected site designations regardless of their legal designation. The abundance of local sites means that they provide the greatest area of biodiverse land outside of the western uplands and within the more developed areas of central and eastern Durham. Their geographical spread makes them best placed to work for biodiversity at a landscape level by contributing to the creation of ecological networks which in turn support priority species and habitats. In practical terms they provide the best opportunity to halt the overall decline in biodiversity.
5.442 This policy, in conjunction with the overarching Biodiversity and Geodiversity policy (Policy 43), seeks to ensure the protection and enhancement of these sites and features. It is necessary to help halt and reverse current negative trends and meet new challenges particularly arising from climate change adaptation and pressures associated with an increasing population.
5.443 It is vital that all stages of development are informed by relevant ecological information, from site selection and design, to planning decisions and long-term management. To determine the likelihood of harm occurring, the effects on any existing habitats, species and/or features of nature conservation importance should be assessed and the results documented. The method of survey and level of detail will vary according to the size and type of development and whether priority species and habitats exist on site.
5.444 All effects should be considered, including positive and negative, direct and indirect, cumulative, and on and off site impacts over the lifetime of the development (including construction, operational and restoration phases). There should also be consideration of disturbance effects such as noise, lighting, recreational pressures, trampling, traffic, domestic pets, vandalism etc. The following criteria should be addressed when development is proposed:
Avoidance of existing sensitive habitats and species through careful site selection;
Location and design should be based upon the most up to date biodiversity data available;
Retention of existing habitats and features of interest, and provision of buffer zones around any sensitive areas;
Enhancement of biodiversity where possible through improving the condition of existing habitats or creation of new ones. Particular attention should be paid to priority habitats referred to in the Durham and/or UK Biodiversity Action Plan(157);
Where harm is identified as likely to result, provision of measures to adequately avoid or mitigate that harm should be set out. Development may be refused if adequate mitigation cannot be provided and there are no other material planning considerations which outweigh that harm or the derogation tests in Article 16 of the Habitats Directive cannot be met; and
Provision of adequate management of the retained and new features.
5.445 In relation to European protected species there will be circumstances in which the council, as part of its statutory function, will be required to form a view on the likelihood of a licence being granted by Natural England to allow a protected species to be captured, killed or disturbed. Licence applications for a development should be regarded as the last available option where all other reasonable alternative ways of avoiding or minimising impacts on the protected species have been discounted and the action is nonetheless likely to result in an offence or offences under the species protection provisions of the Habitat Regulations. In order to achieve this the proposal must demonstrate that it can pass the 3 legal tests, as set out in the guidance note published by Natural England. (158)
157 http://www.durhambiodiversity.org.uk/biodiversity-action-plan/ 158 Natural England Guidance Note (2010): European Protected Species and the Planning Process
County Durham Plan Preferred Options 199 County Durham Plan Preferred Options
5.446 Compensation is a last resort, but will be necessary in some instances where other approaches cannot guarantee no net loss of biodiversity and any unavoidable losses are outweighed by other sustainability considerations. Such measures should be delivered within the development site where possible. However where this is not feasible it may be more appropriate to deliver off site measures through legal agreements and landscape scale projects as close to the development site as possible to avoid the degradation of local ecological networks or ecosystem services. Further guidance can be found in the Planning Practice Guidance (PPG) and associated Defra guidance(159).
5.447 Development also provides opportunities to enhance the natural environment for wildlife and Durham’s communities, particularly through landscaping, public open space, sustainable drainage systems and features of the built environment e.g. bird and bat boxes. Such measures should contribute to the delivery of relevant Biodiversity Action Plan (BAP) targets, but also be tailored to local landscape character. Development may also open up opportunities to bring degraded or neglected features back into favourable condition through sensitive management to encourage wildlife. Such restoration will be particularly valuable where it contributes towards landscape scale projects.
How will the Policy be monitored?
Indicator:
1. Appeals upheld contrary to this policy
Target:
1. None upheld at appeal
Question 52
This is our preferred policy. Do you have any comments?
159 Specifically paragraphs 8-007-20140306, 8-011-20140612, 8-012-20140306 and 8-016-20140612 of the PPG Natural Environment Chapter and Defra site http://www.defra.gov.uk/habitats-review/ and https://www.gov.uk/protected-or-designated-areas
200 County Durham Plan Preferred Options County Durham Plan Preferred Options
International, National and Local Biodiversity and Geodiversity Sites
Policy 46 - Historic Environment
Policy 46
Historic Environment
Development will be expected to sustain the significance of designated and non-designated heritage assets, including any contribution made by their setting. Development proposals should contribute positively to the built and historic environment, and should seek opportunities to enhance and better reveal the significance and understanding of heritage assets whilst improving access where appropriate. In all cases conditions will be applied to ensure new development proceeds following whole or part loss of a heritage asset.
Designated Assets
Protection will be given to all designated assets and their settings (and non-designated heritage assets of archaeological interest that are demonstrably of equivalent significance to scheduled monuments) (160). Such assets should be conserved in a manner appropriate and proportionate to their significance. Substantial harm or total loss to the significance of a designated heritage asset will be permitted only in exceptional circumstances. In the case of designated heritage
160 https://www.gov.uk/guidance/conserving and enhancing the historic environment Reference ID: 18a-040-20140306
County Durham Plan Preferred Options 201 County Durham Plan Preferred Options
assets of the highest significance (161) substantial harm to or total loss of the significance will only be permitted in wholly exceptional circumstances. Less than substantial harm will be weighed against the public benefits of the proposal.
In determining applications, particular regard will be given to the following:
Scheduled Monuments
a. The sustainable management of the monument and its setting.
Listed Buildings
b. Respect for the historic form, setting, fabric, materials, detailing and any other aspects which contribute to the significance of the building or structure; and
c. The retention of the character and special interest of buildings when considering alternative uses.
Historic Battlefields
d. The sustainable management of the battlefield site and its setting.
Registered Park and Garden
e. The sustainable management of the landscape, its features and setting.
Conservation Area
f. The demonstration of understanding of the significance, character, appearance and setting of the conservation area and how this has informed proposals to achieve high quality sustainable development, which is respectful of historic interest, local distinctiveness and the preservation or enhancement of the asset;
g. The manner in which the proposal responds positively to the findings and recommendations of conservation area character appraisals and management proposals; and
h. Respect for, and reinforcement of, the established, positive characteristics of the area in terms of appropriate siting, design, height, form, materials and detailing.
Non-designated Assets
A balanced judgment will be applied where development impacts upon non-designated heritage assets.
In the case of non-designated heritage assets of archaeological interest that are demonstrably of equivalent significance to scheduled monuments, these will be considered subject to the same criteria as those for designated heritage assets.
161 Excluding Durham Cathedral and Castle World Heritage Site which are covered by Policy 47 (Durham Cathedral and Castle World Heritage Site)
202 County Durham Plan Preferred Options County Durham Plan Preferred Options
In determining applications which would affect a known or suspected non-designated heritage asset with an archaeological interest, particular regard will be given to the following:
i. Ensuring that archaeological features are generally preserved in situ; and
j. In cases where it is considered such features do not have a level of significance to warrant preservation in situ, it will be a requirement that they are appropriately excavated and recorded with the results fully analysed and made publicly available.
Heritage at Risk
The council will seek to reduce the number of heritage assets identified at risk and seek to avoid assets becoming at risk in the future. Weight will be given to any significant improvements to at risk heritage assets as a result of development proposals. The deteriorated state of the heritage asset will not be taken into account where evidence shows that the asset has been deliberately neglected or damaged.
5.448 The historic environment is a non-renewable resource and once harmed, buildings and places can lose their character and their significance. A sustainable environment is one in which future generations will have the same opportunity as people today to enjoy, study and make use of our heritage assets. There is a presumption in favour of sustainable development of which the conservation and enhancement of the historic environment forms an important part. In seeking sustainable development great weight will be given to the conservation of heritage assets in the county.
5.449 County Durham has a wide variety of heritage assets that evidence and reflect human interaction with the landscape from prehistoric times to the present. These are manifested in landscapes, towns and villages, individual buildings and features, ancient monuments, open spaces, historic public realm and archaeological sites, with many phases inter-laid upon one another. The county’s designated heritage assets include:
1 World Heritage Site;
3036 Listed Buildings (101 Grade I - 157 Grade II* - 2778 Grade II);
93 Conservation Areas;
226 Scheduled Monuments;
17 Registered Parks and Gardens; and
1 Historic Battlefield.
5.450 The county’s heritage assets are recorded on our Historic Environment Record (HER). The HER is a publicly accessible computerised inventory of our historic environment which includes known heritage assets, sites without statutory protection, and the find-spots of archaeological objects. This inventory is also supplemented with a written report and cartographic and photographic material. As part of the planning process the local authority can identify additional non-designated heritage assets that are not currently statutorily protected. Impact on a non-designated heritage asset is in itself a material consideration for planning decisions.
County Durham Plan Preferred Options 203 County Durham Plan Preferred Options
5.451 The county also contains an array of non-designated heritage assets, including:
Buildings and structures, identified through the planning process, of special architectural and historic significance;
Parks and Gardens of Local Interest;
Spaces and settings which contribute to the significance of the historic environment; and
Assets of archaeological interest.
5.452 Neighbourhood Plans can identify any buildings and spaces that are considered worthy of local designation or of assessment for protection, which would be enacted through the national designation process. They can also identify a requirement for new conservation areas or the revision of existing ones using adopted conservation area character appraisals, along with the need for a local heritage list or a 'local buildings at risk' survey.
5.453 Heritage assets, designated and non-designated, are irreplaceable, so any harm or loss will require clear and convincing justification. This policy aims to ensure that County Durham’s heritage assets are preserved and enhanced so that they can continue to make an important contribution to the environment, economy, quality of life and lifelong learning for this and future generations.
5.454 Sustainable management of the historic environment can have valuable environmental and social benefits, particularly in relation to education, recreation and leisure opportunities. It can also have valuable economic benefits by creating attractive places to work and do business, which helps to attract inward investment and support regeneration.
5.455 Development will be of the highest standard in order to maintain and enhance the quality of an area or building. It should be sensitive to its character, appearance and setting, and avoid or mitigate harm and improve understanding. The use of local materials that are in keeping with the setting of the heritage asset will be encouraged, as appropriate.
5.456 Where we consider there to be a threat to the character, appearance and significance of any conservation area, and protection is required to prevent harm, permitted development rights may in some circumstances be withdrawn under Article IV of the Town and Country Planning Act (General Permitted Development Order) 1995 as amended. Applicants are expected to reference and clearly respond to adopted conservation area character appraisals and management proposals and other guidance produced at a national and local level.
Supporting Information
5.457 All applications affecting heritage assets must be accompanied by a satisfactory Statement of Heritage Significance and Impact (Heritage Statement). Applicants will be required to demonstrate a full understanding of the assets' significance, including any contribution made by their setting. Heritage Statements should be produced by a heritage specialist where appropriate and considered necessary by the council and should be proportionate to the assets’ importance.
5.458 Relevant resources such as primary legislation, conservation area character appraisals, management proposals and neighbourhood plans should be referenced and used to influence the proposal. As a minimum the HER must be consulted and any available information utilised appropriately.
204 County Durham Plan Preferred Options County Durham Plan Preferred Options
5.459 Development proposals which may affect archaeological sites considered to be non-designated heritage assets shall be informed by sufficient evidence to enable its significance to be clearly revealed and the potential impact of the proposal to be fully understood.
5.460 Where proposals are likely to affect sites of known importance, sites of significant archaeological potential, or those that become apparent through the development management process, background research followed up by archaeological evaluation will be required prior to their determination. This will also be a requirement for greenfield sites of 1 hectare or more in extent. The findings of this assessment will be a material consideration which informs the determination of the planning application. All resultant information shall be made available in an appropriate form for inclusion in the HER to advance understanding.
How will the Policy be monitored?
Indicator:
1. Number of heritage assets lost
2. Number of heritage assets removed from At Risk Registers as a result of the implementation of a permitted scheme
3. Appeals upheld contrary to this policy
Target:
1. No heritage assets subjected to unjustified loss or harm
2. 100% of heritage assets removed from the At Risk Register, that relate to permitted schemes.
3. None upheld at appeal
Question 53
This is our preferred policy. Do you have any comments?
Policy 47 - Durham Cathedral and Castle World Heritage Site
Policy 47
Durham Cathedral and Castle World Heritage Site
The Durham Cathedral and Castle World Heritage Site is a designated asset of the highest significance. Development within or affecting the setting of the World Heritage Site will be required to:
County Durham Plan Preferred Options 205 County Durham Plan Preferred Options
a. Sustain or enhance the significance of the designated asset;
b. Be based on an understanding of the Outstanding Universal Value of the site, having regard to the adopted World Heritage Site Management Plan and Statement of Outstanding Universal Value; and
c. Protect and enhance the Outstanding Universal Value, the immediate and wider setting and important views across, out of, and into the site.
Development that would result in harm to the Outstanding Universal Value of the World Heritage Site or its setting will not be permitted other than in wholly exceptional circumstances.
5.461 Through the 1972 World Heritage Convention, the United Nations Educational, Scientific and Cultural Organisation (UNESCO) has identified the formal recognition and management of World Heritage Sites (WHS) as a key means of conserving the world's cultural and natural heritage for present and future generations. The designation of the Durham Cathedral and Castle WHS in 1986 recognised its national and international significance. The key attributes of the site relate to its historical, cultural and architectural importance and are set out in the Statement of Outstanding Universal Value (SOUV). It is imperative therefore that development does not detrimentally impact on the WHS and its OUV, and that opportunities to positively enhance the site are supported.
5.462 The setting of the WHS is the environment in which it is experienced and understood. While some of the features that affect it can be mapped, the setting itself cannot be easily defined as a singular geographical entity. The relatively compact and modest scale of the city and its tranquil nature, as well as views, impact upon the setting of the WHS and its setting can also influenced by other environmental factors such as noise or vibration from other land uses in the vicinity, and by our understanding of the historic relationship between places. It is therefore imperative that development within the wider setting, even where the WHS cannot be seen, respects the significance of the asset and its overall setting and status in the city. Development outside of the designated boundary can have adverse impacts on either the visual environment of the WHS or on attributes associated with it which contribute to its Outstanding Universal Value.
5.463 The setting of the WHS is formed in part by an ‘inner bowl’ contained by nearby ridges and spurs incised by the meandering River Wear, and a more diffuse ‘outer bowl’ contained by more distant high ground including the limestone escarpment to the east and south, and higher spurs and ridges to the west. These form important horizons and skylines in the backdrop of many views of, from and within the WHS, and contain important vantage points from which the WHS is viewed. Development within these areas can detract from the appearance of the WHS, as can development beyond the outer bowl which breaks the skyline. This is particularly true for tall structures such as wind turbines and masts.
5.464 In considering this policy, particular reference should be made to the SOUV for the WHS and the Durham Castle and Cathedral World Heritage Site Management Plan. The Management Plan provides a strategy for conserving the WHS that meets the needs of the site’s users and visitors. It is not a statutory document, but an advisory framework to inform decisions about the management of the site. It aims to:
Conserve the site;
206 County Durham Plan Preferred Options County Durham Plan Preferred Options
Enhance the character of the site and its surroundings for the benefit of local communities and visitors; and
Maintain the site’s active role as a religious, educational and residential environment.
5.465 Applicants will be required to demonstrate that account has been taken of the impact of their proposals upon the significance of the WHS (including cumulative harm) and its setting and demonstrate that those proposals will have no adverse effect upon its OUV. Any harm to, or loss of, designated heritage assets of the highest significance (including world heritage sites) should be wholly exceptional requiring clear and convincing justification. Where a development proposal would lead to less than substantial harm to the significance of the asset, this harm should be weighed against the public benefits of the proposal, including securing its optimum viable use and realising the economic potential of the WHS providing benefits are managed in a sustainable manner.
5.466 The impacts of development proposals which fall within the WHS boundary, or potentially impact upon its setting, should be addressed within supporting evidence including Design and Access and Heritage Statements. Considered use of evidence based documents (such as the Durham City Conservation Area Character Appraisal, the Durham Castle and Cathedral WHS Management Plan, and, the ICOMOS Guidance on Heritage Impact Assessments) should be demonstrated within proposals. This includes how proposals need to demonstrate the relative qualitative impacts upon characteristics and attributes of the WHS and its setting, especially those relating to its unique OUV.
Supporting Information
5.467 Due consideration should be given to Environmental Impact Assessment (EIA) regulations which list WHSs as ‘sensitive areas’. Development in, or otherwise affecting, the WHS would be Schedule 2 Development and a Screening Opinion will be required from the council which will possibly result in the need for Environmental Impact Assessment.
How will the Policy be monitored?
Indicator:
1. Appeals upheld contrary to this policy
Target:
1. None upheld at appeal
Question 54
This is our preferred policy. Do you have any comments?
County Durham Plan Preferred Options 207 County Durham Plan Preferred Options
Policy 48 - Stockton and Darlington Railway
Policy 48
Stockton and Darlington Railway
Development which impacts upon the Stockton & Darlington Railway will be supported where it:
a. Safeguards and enhances access to the route of the historic Stockton & Darlington Railway of 1825, the Black Boy and Haggerleases branch lines and associated structures, archaeological remains and setting; and
b. Demonstrates appropriate regard to the preservation of any physical remains along the route(s) and their interpretation on the ground, and otherwise respects and interprets the route(s) where those remains no longer exist.
5.468 The Stockton & Darlington Railway (S&DR) was opened on 27th September 1825 and was the place where passengers were pulled by a locomotive steam engine for the first time. It is therefore of international importance in the development of rail transport and industrial technology. It differed from other early waggonways and railways in its application and development of several areas of new engineering, not least the steam locomotive. The S&DR also established a permanent rail infrastructure providing a regular service transporting both goods and passengers. By linking populated areas and attracting additional businesses and industries, the S&DR resulted in population growth and increased movement. It was also designed from the outset to have branch lines as well as the main line.
5.469 While part of the line of the railway is still in use by the Rail Industry, much of the original line is no longer used and now survives in various levels of preservation. The remains of the S&DR and the associated branch lines, structures and archaeological deposits are unique in their scale, cross-boundary nature and importance to worldwide railway history. The purpose of this policy is therefore to ensure the continued preservation and enhancement of those sections of the line and associated structures that lie within County Durham. This policy will supplement Policy 46 (Historic Environment).
5.470 The S&DR Historic Environment Audit identifies the historical importance and significance of the railway. The Audit was jointly commissioned by Durham County Council, Darlington Borough Council and Stockton-on-Tees Borough Council. The Audit also provides an action plan and makes recommendations for the conservation, interpretation and management of the route and its component parts. Any proposal for development of a S&DR related heritage asset must be informed by the S&DR Historic Environment Audit, and any subsequent planning documents adopted by the council, to demonstrate that appropriate regard has been had to the route and its component parts and the requirements of the Plan.
208 County Durham Plan Preferred Options County Durham Plan Preferred Options
How will the Policy be monitored?
Indicator:
1. Appeals upheld contrary to this policy
Target:
1. None upheld at appeal
Question 55
This is our preferred policy. Do you have any comments?
Minerals and Waste
5.471 National planning policy requires the council to provide for the future needs for new mineral extraction and waste management. We intend to fulfill this requirement through the preparation of this Plan and a separate Minerals and Waste Policies and Allocations document. The role of these two documents are different. This Plan document sets out strategic policies for minerals and waste in County Durham over the Plan period and:
Identifies, where possible, the scale of future minerals extraction and waste management capacity that will need to be accommodated within the county over the period to 2035;
Sets out as far as possible where and when new provision will be necessary;
Provides clear guidance to enable site specific allocations and planning applications to be considered in both locational and criteria based terms; and
Allocates Strategic Sites for new minerals and waste development, where necessary.
5.472 The Minerals and Waste Policies and Allocations document(162) will complement the minerals and waste policies of this Plan. It will set out specific policies for a number of minerals not addressed by this Plan, for example all forms of conventional and unconventional oil and gas including Shale Gas and Underground Coal Gasification (UCG), vein minerals, peat and engineering clay. In addition it will contain detailed development management policies for minerals and waste and, if necessary, it will allocate any non strategic mineral or waste sites which are required to meet longer term need. Following the adoption of this Plan and in the interim until the Minerals and Waste Policies and Allocations document is adopted, planning applications for new mineral working and waste development will be determined in accordance with the policies in this section of the Plan and other relevant policies of this Plan together with saved policies of the County Durham Minerals Local Plan (December 2000)
162 Further details of the role and scope of the Minerals and Waste Policies and Allocations document are set out in a scoping document which has been published aongside the Local Plan Preferred Options Report.
County Durham Plan Preferred Options 209 County Durham Plan Preferred Options
and the County Durham Waste Local Plan (April 2005). Once adopted the policies and provisions of the Minerals and Waste Policies and Allocations document will replace any remaining saved policies of the County Durham Minerals Local Plan and the County Durham Waste Local Plan.
Minerals and Waste in County Durham
5.473 Minerals are a fundamental natural resource. They are of vital importance to modern economies and are essential to sustainable economic growth and quality of life. They contribute to the local and national economy through both direct and indirect employment(163) and as essential raw materials including power generation, without which it would be impossible for the building and construction industry to deliver the new development and infrastructure which is required through the Plan.
5.474 County Durham is a geologically rich county and possesses a wide range of mineral resources of national and local importance. The production of aggregates(164) for use in the building and construction sector is the largest in terms of output volume in County Durham today. County Durham is a regionally important producer of aggregates and produces significant quantities of magnesian limestone(165), carboniferous limestone, dolerite and sand and gravel every year. Other important non aggregate minerals worked in the county include: brick making raw materials including coal measures mudstone and glacial clay to supply two of the region's four remaining brick works; and natural building and roofing stone for a variety of purposes including general walling, building, paving, roofing and architectural building stone.
5.475 Historically, County Durham has also been a major producer of coal. Although all deep coal mines have now closed, continued interest remains in the extraction of coal by surface mined methods. Magnesian limestone is also worked for industrial purposes(166) for use in the steel industry and a proportion of magnesian limestone, which is either unsuitable for aggregates or high grade uses, is used to produce agricultural lime to correct the acidity in soil. In addition County Durham contains a range of other mineral resources including deposits of fireclay that are sometimes found in association with coal, silica sand and vein minerals such as fluorspar and barytes although none are currently being worked today.
5.476 Waste is a natural by-product of all social and economic activity. Over recent years international and national concern for the impact of the disposal of waste has led to a fundamental change in how waste is viewed. Rather than managing waste primarily through disposal to landfill using voids created by mineral extraction, waste is now recognised as a valuable resource. Recycling is increasingly becoming part of people's everyday lives but more needs to be done. Planning for waste management now seeks to tackle the growth in waste, prevent waste at source, decouple economic growth from waste growth, and maximise the recovery of value through waste management which focuses upon increased recycling, composting and energy recovery, with final disposal a last resort, in line with the waste hierarchy.
163 In 2014 in total 467 direct and indirect jobs were provided by the minerals industry in County Durham. (Source Mineral Extraction in Great Britain Business Monitor PA1007, March 2016, ONS/MHCLG). 164 Aggregates are normally defined as being hard granular, materials which are suitable for use either on their own or with the addition of cement lime or a bituminous binder in construction. In Britain it is common practice to distinguish between primary aggregates and alternative sources such as secondary aggregates. Primary aggregates are produced from naturally occurring mineral deposits, extracted for use as aggregate and used for the first time. Secondary aggregates are usually defined as (a) aggregates obtained as a by product of other quarrying and mining operations such as colliery spoil or (b) aggregates obtained as a byproduct of industrial processes such as power station ash. 165 Magnesian Limestone: Technically a limestone containing between 5 and 15% of the mineral dolomite, the remaining part being largely the mineral calcite. The term is also used to identify Permian age limestone and dolomite features in eastern England. 166 Limestone is a rock composed of the mineral calcite, whose principal chemical component is calcium carbonate. Most limestones contain some magnesian carbonate, and where this becomes significant (between 5 and 15%) the rock is described as magnesian limestone. Where the proportion is in excess of 15% the rock is commonly known as dolomite. High Grade Dolomite is dolomite rock which has few impurities, particularly iron oxide, silica and alumina, so that when it is used for the production of magnesia, as a steel flux, as an iron sinter, or in the glass making industry such impurities do not impair the quality of the subsequent product.
210 County Durham Plan Preferred Options County Durham Plan Preferred Options
Waste Heirarchy
5.477 County Durham faces major challenges in planning for waste management. Radical shifts in the behavior of waste managers, waste producers and the public are needed. Waste management is increasingly seen as part of the wider efforts to reduce carbon emissions and combat climate change and the Government's Waste Review(167) has pointed to the 'zero waste' economy as a clear goal. National Planning Policy for Waste (NPPW) from the outset stresses positive planning and the delivery of sustainable development and resource efficiency by driving waste management up the Waste Hierarchy. The strategy of the county reflects the Waste Hierarchy and will play a vital role in ensuring sustainable development in County Durham and that resource use is within limits whilst ensuring necessary infrastructure is appropriate and in the right places. In this way, the Plan will help to meet the requirements of ensuring sustainable waste management without harming the environment or endangering human health. Currently just over 1.5 million tonnes of waste require management in County Durham every year(168) consisting of a wide range of waste streams including significant quantities of Local Authority Collected Waste (LACW)(169), commercial and industrial and inert waste. In addition to these streams a range of other waste streams need to be managed including hazardous waste, agricultural waste, sewage and water treatment sludge and low level radioactive waste.
5.478 As part of the effort to encourage sustainable development and respond to climate change, the Plan needs to ensure that the use of resources is put onto a more sustainable footing. This will require careful extraction and efficient use of mineral resources, and the prevention and reduction of waste and recovery of value through sustainable waste management, as part of the move towards a low carbon economy.
5.479 The minerals and waste policies of the Plan are founded on a robust and credible evidence base. A Minerals and Waste Technical Paper has been prepared to support the Plan. The approach to minerals and waste planning set out in this section builds upon, and has had regard to, previous consultation undertaken.
167 Government Review of Waste Policy in England (DEFRA, 2011). 168 Waste Interrogator, Environment Agency, 2016 data. 169 Local Authority Collected Waste is all waste which is collected by the Local Authority. This includes both non-municipal waste fractions (such as construction and demolition waste if collected by the Local Authority) and waste which is 'similar in nature and composition' (such as business waste) as required by the Landfill Directive. The latter can be described as Local Authority Collected Municipal Waste (LACMW).
County Durham Plan Preferred Options 211 County Durham Plan Preferred Options
Policy 49 - Sustainable Minerals and Waste Resource Management
Policy 49
Sustainable Minerals and Waste Resource Management
The development of a sustainable resource economy in County Durham will be promoted, encouraged and facilitated by:
a. Managing waste in line with the Waste Hierarchy and encouraging the prevention, preparing for re-use or recycling of waste. Where it can be demonstrated that waste cannot be re-used or recycled, other recovery options including energy from waste (including anaerobic digestion) should be considered in line with other Plan policies, before landfill or landraise.
b. Proposals which would help to prepare waste for re-use will be supported where they are acceptable in all other respects;
c. Requiring all proposals for mineral extraction to minimise the amount of mineral waste produced in extraction, handling, processing and stockpiling; and to maximise the potential for mineral waste to be used in recycling or on-site restoration. If mineral waste is not required for these purposes then where practicable, a market for its potential use should be identified;
d. Encouraging and permitting the concurrent working of two or more minerals from the same site provided that the operation or restoration of the site is not prejudiced or significantly delayed, the overall proposal remains acceptable and does not have an unacceptable adverse impact on either the environment or the amenity of local communities;
e. Permitting proposals for aggregate recycling facilities including at locations suitable for permanent waste management facilities and at active quarries and landfill sites. Such proposals will only be permitted:
1. For a temporary period not exceeding the permitted life of the quarry or landfill site;
2. Provided that the operation or restoration of the site is not prejudiced or significantly delayed; and
3. Provided that the overall proposal remains acceptable and does not have an unacceptable adverse impact on either the environment or the amenity of local communities.
5.480 In order to deliver sustainable development, the Plan encourages the efficient and sustainable use of minerals and waste. More sustainable ways of thinking about resource use and management lead to wider benefits for the environment, climate change and carbon emissions as well as benefits such as local employment opportunities, reduced costs and a more diverse and innovative ‘green’ economy. Waste has a value and is no longer a problem requiring simple disposal by landfill or incineration.
212 County Durham Plan Preferred Options County Durham Plan Preferred Options
5.481 Waste is a resource and not re-using it or recovering it is a misuse of valuable resources. We will seek to ensure that all waste types are managed in accordance with the principles of the Waste Hierarchy, whilst protecting the environment and human health. Priority will be given to the prevention or reduction of waste at source, followed by increased re-use, followed by recovery (recycling, composting etc), with less reliance on the disposal of waste without any recovery of value, which should be seen as a last resort.
5.482 The reduction and prevention of waste and the use of the Waste Hierarchy also have clear implications for the reduction of carbon emissions. This is due to the prevention of landfilling of biodegradable waste which creates methane when it breaks down; the prevention of the use of new raw materials or increased energy use for the processing of virgin materials; and the prevention of the needless disposal of materials which can be re-used.
5.483 The clear aim of Government and international policy is a ‘zero waste’ or circular economy(170) The circular economy is an alternative to the traditional 'linear' economy of make, use, and dispose. It will involve more radical thinking and some aspects will be outside the reaches of this Plan such as more intelligent manufacturing, therefore designing out waste. The Plan can support this, however, by supporting innovative businesses through positive planning decisions.
5.484 Industrial symbiosis, the use of one industry's waste or by products as another's raw material, is another example of the implementation of the 'zero waste' or circular economy. Such proposals help business earn new revenue, reduce waste, reduce costs and carbon emissions and will help to establish markets for recycled materials and provide local employment opportunities. It is therefore our intention to support such applications provided that they are acceptable in all other respects.
5.485 Moving waste up the hierarchy is not simply concerned with waste developments, all development proposals can help in the drive for a more sustainable use of resources and the achievement of a circular economy. This can be from the consideration of provision for recycling in new development to designing out waste in the use of materials and through sustainable design and construction. Prevention of waste in the first instance is just as important as its minimisation, if not more so.
5.486 Proposals which would help to prepare waste or waste items for re-use will be supported where they are acceptable in all other respects. In order to continue to develop a sustainable resource economy in the county, we will look to work pro-actively in collaboration with applicants to approve the development of re-use enterprises or schemes and in the delivery of new facilities which enable use to be made of waste resources.
5.487 Minerals are a finite natural resource. In order to support their long term conservation it is essential to make best use of them through:
the efficient extraction of minerals and the reduction and productive use of mineral waste;
the concurrent working of minerals where two or more minerals naturally occur; and
mineral safeguarding in order to ensure economically important minerals remain available for the use of future generations and are conserved in the long term and the prior extraction of minerals in advance of sterilising development.
5.488 In order to help facilitate the use of recycled and secondary aggregates and reduce the reliance on land won and marine aggregates, we will seek to permit proposals to establish both permanent and temporary aggregate recycling facilities in appropriate locations. We will seek to
170 The EU published its first Circular Economy Strategy in December 2015.
County Durham Plan Preferred Options 213 County Durham Plan Preferred Options
expand the county's permanent network of aggregate recycling facilities by permitting new facilities on suitable industrial estates and will encourage the use of mobile aggregate recycling facilities at redevelopment projects. We also recognise that opportunities may exist to locate temporary aggregate recycling facilities at active quarries in conjunction with landfilling operations on a time limited basis, which is in accordance and does not conflict with the primary planning permission at the quarry or the landfill site.
How will the Policy be monitored?
Indicator:
1. Capacity (tonnage) of secondary and recycled aggregate management facilities
2. Appeals upheld contrary to this policy
Target:
1. Increase the capacity of secondary and recycled aggregate management facilities (against the baseline figure)
2. None upheld at appeal
Question 56
This is our preferred policy. Do you have any comments?
Policy 50 - Safeguarding Minerals Sites, Minerals Related Infrastructure and Waste Management Sites
Policy 50
Safeguarding Minerals Sites, Minerals Related Infrastructure and Waste Management Sites
Existing and allocated minerals sites, minerals processing facilities and minerals related transportation infrastructure and important waste management sites(171)(172), shall be safeguarded and protected from all non-mineral and non-waste related development.
171 Existing and allocated minerals sites, minerals processing facilities and minerals related transportation infrastructure and important waste management sites are listed in Appendix C and shown on the policies map. Where sites are a temporary use of land they shall be safeguarded in accordance with their planning permissions. 172 All minerals and waste allocations within the Plan and the Minerals and Waste Policies and Allocations Document will also be safeguarded upon adoption.
214 County Durham Plan Preferred Options County Durham Plan Preferred Options
Planning permission will not be granted for non-minerals or non-waste related development that would result in the loss of existing or allocated minerals processing facilities and minerals related transportation infrastructure and waste management sites unless:
a. Where the facility, infrastructure or site is in active use an alternative suitable site within an acceptable distance can be provided, which is at least as appropriate and acceptable for the use as the safeguarded site; or
b. The facility, infrastructure or site is not in active use and it can be demonstrated that it no longer meets the current or anticipated future needs of the minerals, building and construction industry or the waste management industry; or
c. The need for the alternative development outweighs the benefits of retaining the existing, or allocated infrastructure, facility or site;
Planning permission will not be granted for non-minerals or non-waste related development adjacent to a safeguarded minerals processing facility, minerals related transportation infrastructure, minerals site or waste management site, or within a defined minerals or waste site safeguarding zone (where defined on Map C in the policies map document) other than for exempt development, except where it can be demonstrated that the new non-minerals or non-waste development would not prevent, prejudice or be prejudiced by the current or future use of the safeguarded infrastructure, facility or site including through provision of adequate mitigation to reduce any impacts to an acceptable level.
5.489 County Durham contains an established network of minerals sites, minerals processing facilities, minerals related transportation infrastructure and waste management sites. Many of the these sites are considered essential to the continued operation of the minerals and construction industry and to the collection and sustainable management of waste in County Durham. The sites which are safeguarded are listed in Appendix C and are identified on Map C in the policies map document and include:
Mineral sites - including operational existing crushed rock, sand and gravel, brick clay and natural building and roofing stone quarries and dormant quarries where a new scheme of working and restoration is required to be submitted and agreed prior to working resuming, and allocations for new mineral working.
Mineral processing facilities - including brick works, coated road stone plants, concrete plants and the kilns for the production of calcined material.
Minerals related transportation infrastructure - including rail alignments, rail links to quarries and railheads which could facilitate the sustainable transport of minerals by rail(173).
Waste management sites - sites associated with the collection and management of a range of waste streams including local authority collected waste (LACW), commercial and industrial waste, inert waste and hazardous waste including household waste recycling centres (HWRCs), recycling and treatment facilities, waste transfer stations and landfill and landraise sites.
173 Unlike Tyne and Wear to the north and the Tees Valley to the south, there are no marine wharfs in County Durham.
County Durham Plan Preferred Options 215 County Durham Plan Preferred Options
5.490 Mineral processing facilities, minerals related transportation infrastructure and important waste management sites are safeguarded in order to protect them from loss and in order to ensure their continued availability in the long term. While many mineral processing facilities and some waste management sites are temporary permissions and are located within existing active mineral sites and landfill sites and will continue to be protected by the principal mineral or waste permission, some permanent facilities are located on industrial estates and other locations and as relatively low value uses may be vulnerable to competing higher value land uses. However, it is recognised that alternative uses may be permitted in certain circumstances. For example, where it can be demonstrated that an alternative suitable site can be provided within an acceptable distance, or it can be demonstrated that the infrastructure no longer meets the current or anticipated future needs of the minerals, building and construction industry or the waste management industry, or the need for the alternative development outweighs the benefits of retaining the site. Similarly, while the majority of minerals extracted in the county are transported by road and County Durham has only limited mineral transportation infrastructure such as rail heads and rail links to quarries, nonetheless, it is considered necessary to safeguard them in order to help provide opportunities for the sustainable transport of minerals by rail in the future. In particular, any proposal which would breach an unused rail alignment via permanent development will not be acceptable. However, where a link is currently disused, temporary uses which maintain the integrity of the alignment, such as recreational routes, may be permissible.
5.491 In order to allow consideration of encroaching proximal development a new designation to be known as a minerals and waste safeguarding site zone has been identified on the policies map around the majority, but not all, of the safeguarded sites. The purpose of the minerals and waste safeguarding zone around such sites is to enable appropriate consideration to be given to the compatibility of proposed new uses, with the existing established minerals or waste related use. For example, it is considered that the introduction of other types of development such as housing, schools and commercial and industrial development that may be sensitive to disturbance from impacts such as noise and dust and may depend upon a high quality local environment (for example food manufacture or glass manufacture) in close proximity to existing or allocated minerals or waste management sites can result in a potential conflict with the established minerals and waste related uses. In instances where a minerals and waste safeguarding zone has not been identified, consideration of the compatibility of the existing and proposed adjacent land uses will be required.
5.492 The starting point for the identification of the minerals and waste safeguarding zones has been a 250 metre zone around all mineral sites (unless blasting is likely to take place, in such instances the zone has been set at 500 metres), 100 metres around all mineral processing infrastructure and 250 metres around all landfill sites and composting sites. It is considered that these distances are a starting point for consideration and reflect a balance between ensuring that the potential for acceptable adverse impacts arising is allowed for, whilst limiting the extent to which consultation for safeguarding purposes is required(174). However, it is recognised that not all development may be inappropriate within a mineral and waste site safeguarding zone and for this reason a schedule of exempt development has been prepared (See Appendix C).
174 The 250 metre and 500 metre zones for mineral sites is consistent with the distances the Council has used for many years within the County Durham Minerals Local Plan as a starting point for stand off distances, for new or extended mineral sites from existing residential areas and groups of 10 or more dwellings. Similarly, the 250 metre zone for landfill sites and compositing sites is consistent with the distances used within the County Durham Waste Local Plan. The 250 metre distance is also consistent with Environment Agency’s restrictions on open composting of waste taking place within 250 metres of residential property or place of work unless a risk assessment proves otherwise.
216 County Durham Plan Preferred Options County Durham Plan Preferred Options
How will the Policy be monitored?
Indicator:
1. Appeals upheld contrary to this policy
Target:
1. None upheld at appeal
Question 57
This is our preferred policy. Do you have any comments?
Policy 51 - Meeting the Need for Primary Aggregates
Policy 51
Meeting the Need for Primary Aggregates
The council will seek to make sufficient land available for mineral working to enable a steady and adequate supply of primary aggregates to be maintained. In doing so the council will seek to maintain a minimum crushed rock aggregate landbank of at least ten years and a minimum sand and gravel landbank of at least seven years at all times. Proposals for new or extended aggregate workings will be permitted subject to appropriate planning conditions where:
a. The site is allocated as a strategic site within the Plan or as a non-strategic site in the Minerals and Waste Policies and Allocations document;
b. It contributes to meeting the need identified in this Plan for further carboniferous limestone working, which cannot be met by allocations within the Local Plan or by non-strategic allocations within the Minerals and Waste Policies and Allocations document, and provided that the proposal would accord with the locational approach to the working of carboniferous limestone as set out in this policy and does not add significantly to the total landbank of permitted reserves in the County;
c. The Local Aggregate Assessment identifies a need for further working that cannot be met either by existing planning permissions, by a strategic allocation within the Local Plan or non-strategic allocations within the Minerals and Waste Policies and Allocations document, and provided that the proposal would accord with the locational approach to the working of the aggregate mineral and does not add significantly to the total landbank of permitted reserves in the County;
d. Working would prevent the sterilisation of mineral resources and constitute prior extraction in advance of other development which either has planning permission or is allocated; or
County Durham Plan Preferred Options 217 County Durham Plan Preferred Options
e. The proposal is acceptable as a borrow pit and would provide aggregates in proximity to a specific construction project; and
f. It can be demonstrated that there will be no unacceptable adverse impacts on either the environment or the amenity of local communities.
Other than those permitted under criteria (a) to (e) in combination with criterion (f) proposals for new or extended aggregate workings will not be permitted where the overall crushed rock or sand and gravel landbank is more than adequate to meet future needs over the plan period and the overall productive capacity of existing sites is more than sufficient to meet the scale of working which is required to meet the annual demand requirement set out in the council's Local Aggregate Assessment unless:
g. The planning benefits of the proposal outweigh any planning objections;
h. The proposal accords with the locational approach to the working of the aggregate mineral concerned as set out in this policy;
i. The proposal does not add significantly to the total landbank of permitted reserves in the county; and
j. It can be demonstrated that there will be no unacceptable adverse impacts on either the environment or the amenity of local communities.
In recognition of the importance of the full recovery of permitted reserves, proposals to extend the end date for working and restoration within existing mineral sites will be permitted, where it can be demonstrated that permitted reserves would otherwise remain unworked at the end of the existing planning permission and there will be no unacceptable adverse impacts on either the environment or the amenity of local communities. This presumption will not apply to sites which have not been substantively worked within ten years preceding the planning permission end date.
All new planning permissions and reviews of existing permissions under the Environment Act 1995 (or any statutory modification to or re-enactment of that Act) will be conditioned to require the annual submission of information detailing the extent of remaining permitted reserves and sales.
Locational Approach
Magnesian Limestone - No new or extended working areas for magnesian limestone will be permitted on the East Durham Limestone Plateau for aggregate, high grade purposes, or for agricultural lime production. However, if exceptionally any new working is permitted in accordance with criteria (g) to (j), no new working will be permitted on prominent escarpment slopes in order to avoid unacceptable landscape and visual effects.
Carboniferous Limestone - Unless allocated as a strategic site in the Local Plan or as a non strategic site in the Minerals and Waste Policies and Allocations document proposals for new working should normally be located outside of and should not adversely impact upon the North Pennines AONB, Special Areas of Conservation or Special Protection Areas.
218 County Durham Plan Preferred Options County Durham Plan Preferred Options
Dolerite - If supply cannot be maintained from existing sites, proposals for new working will only be permitted provided that proposals do not adversely impact upon the North Pennines AONB, Special Areas of Conservation or Special Protection Areas.
Sand and Gravel- In order to maintain a steady and adequate supply of sand and gravel in the long term, proposals for basal permian sand extraction from beneath the floor of existing magnesian limestone quarries will be prioritised, followed by the lateral extension of existing magnesian limestone quarries(175)to access basal permian sand, followed by new sand and gravel quarries outside of environmentally important areas.
5.493 County Durham is a major source of primary aggregates in the North East of England, producing a range of types of crushed rock aggregate including magnesian limestone, carboniferous limestone, dolerite and sand and gravel. Although production has fallen in recent years (as shown in Table 9) the scale of the county's contribution to meeting the region's needs for minerals has in the past been significant. Accordingly, we recognise that ensuring a continued steady and adequate supply of aggregates from the County Durham is essential to the functioning of both the county's and the North East's economies.
5.494 Through this Plan and the Minerals and Waste Policies and Allocations document we will seek to maintain a steady and adequate supply of primary aggregates over the Plan period and beyond. Ensuring a steady and adequate supply of aggregates is recognised as important in order to support sustainable economic growth. However, we also recognise the importance of ensuring that the supply of aggregates minerals is controlled. This is important in order to:
Minimise the adverse impacts of mineral working on both the environment and the amenity of local communities to acceptable levels;
Prevent over provision in supply which would undermine the ability of existing aggregate quarries to be worked in accordance with their existing planning permissions; and
Avoid undermining the sustainable use and long term conservation of minerals.
Table 8 Scale of County Durham and North East England Crushed Rock and Sand and Gravel Sales 2007 to 2016 (thousand tonnes).
2007 2008 2009 2010 2011 2012 2013 2014 2015 2016
County 3,559 3,036 1,920 2,056 1,955 1,696 2,245 2,654 2,770 2,990 Durham Crushed Rock Sales
North East 5,689 5,079 3,379 3,462 3,433 3,181 3,569 4,162 4,553 5,248 Crushed Rock Sales
175 If any new working is permitted in accordance with criteria (g) to (j), no new working will be permitted on prominent escarpment slopes in order to avoid unacceptable landscape and visual effects.
County Durham Plan Preferred Options 219 County Durham Plan Preferred Options
2007 2008 2009 2010 2011 2012 2013 2014 2015 2016
County 201+ 183 199 164 237 199 218 276 256 322 Durham Sand and Gravel Sales
North East 1,037 926 757 757 869 713 716 931 917 973 Sand and Gravel Sales
Source: Joint Local Aggregates Assessment for County Durham, Northumberland and Tyne and Wear (April 2018). (+) Council best estimates.
5.495 Traditionally the approach to aggregates provision in England has been a top down approach based upon National and Regional Aggregate Supply Guidelines published by the government and then apportioned to individual sub-regions. As a result of the changes to the planning system introduced by the Government in 2012 this has now changed. While the government still intends to publish National and Sub National Guidelines(176) and requires that they are taken into account by Mineral Planning Authorities such as Durham County Council, the government now also requires the preparation of an annual Local Aggregate Assessment. Through this process Mineral Planning Authorities are required to assesses the demand for, and supply of, aggregates in their area and then seek to make provision in their local plans. Rather than prepare a Local Aggregate Assessment in isolation and just for County Durham, the approach we have taken has been to prepare a Joint Local Aggregate Assessment (Joint LAA) with councils in Northumberland and Tyne and Wear.
5.496 To date we have prepared five Joint LAAs. All of which have been prepared in accordance with Government guidance and have been subject to consultation with relevant stakeholders including mineral operators, their representative organisations and neighbouring councils.
5.497 Taking into account sales in 2016 and the extent of permitted reserves on 31.12.16 the table below calculates the scale of provision which is required over the plan period to 2035. It is calculated that provision should be made for 53,295,000 tonnes of crushed rock and 5,415,000 tonnes of sand and gravel(177).
Table 9 Aggregates requirement calculations 2017 to 2035 (19 years)
Crushed Rock Sand and Gravel
Sales in 2016 2,990,375 tonnes 322,129 tonnes
Ten year sales average (2007 to 2016) 2,488,100 tonnes 225,500 tonnes
Three year sales average (2014 to 2016) 2,805,000 tonnes 285,000 tonnes
Annual Demand Provision Figure (as set out 2,805,000 tonnes 285,000 tonnes in Joint Local Aggregate Assessment (April 2018))
176 National and Sub National Guidelines are the Government's new name for the National and Regional Aggregate Supply Guidelines. The last National and Regional Aggregate Supply Guidelines were published by the government in June 2009. While these guidelines were never formally apportioned the recommended apportionment for County Durham proposed an apportionment of 5 million tonnes of sand and gravel (312,500 tonnes per annum) and 59.4 million tonnes of crushed rock (3,712,500 tonnes per annum) over the 16 year period to 2020. 177 The Joint LAA (April 2018) identifies an annual demand requirement figures of 2,805,000 tonnes for crushed rock and 285,000 tonnes for sand and gravel. The total demand provision figures over the period to 2035 are calculated using these figures. Reflecting that 2016 sales and permitted reserves information are available the forecasts reflect the position over the 19 year period 1 January 2017 to 31 December 2035.
220 County Durham Plan Preferred Options County Durham Plan Preferred Options
Crushed Rock Sand and Gravel
Demand Forecast 1.1.17 to 31.12.351 53,295,000 tonnes 5,415,000 tonnes
Permitted Reserves 31.12.16 131,389,000 tonnes 7,610,000 tonnes
Landbank years at 31.12.16 46.8 years 26.7 years
Balance between supply and demand (2017 +78,094,000 tonnes + 2,195,000 tonnes to 2035)1
Source: Joint Local Aggregates Assessment for County Durham, Northumberland and Tyne and Wear (April 2018). Notes 1: The demand forecast and balance between supply and demand has been calculated to align with the plan period.
5.498 Table 10 sets out the current position on aggregate supply and demand over the plan period and demonstrates in quantitative terms that there is more than sufficient permitted reserves within County Durham's aggregate quarries to meet future need based upon the total demand provision figures set out above(178).
5.499 Despite the overall healthy quantitative position we have also sought to consider the ability of County Durham's aggregates quarries to achieve the scale of production required to both maintain sales in accordance with the annual demand provision figure set out in the current joint LAA and the scale of working resulting from the recommended sub-regional apportionment of the Government's June 2009 National and Regional Aggregate Supply Guidelines. In addition we have also considered the ability of County Durham's aggregates quarries to produce the range of types of crushed rock aggregate and sand and gravel aggregate that County Durham has traditionally produced. These matters are discussed below and are considered by each of the main aggregates types worked in County Durham.
Aggregate Landbanks
5.500 In accordance with government policy on landbanks and their operation, we will seek to maintain at all times a minimum landbank(179) of at least 7 years for land-won sand and gravel and 10 years for crushed rock. As can be seen above, on 31 December 2016 County Durham had a crushed rock landbank equivalent to 46.8 years and a sand and gravel landbank equivalent to 26.7 years. Accordingly, on a quantitative basis both the crushed rock landbank and the sand and gravel landbank can be considered more than adequate to meet future needs over the plan period.
5.501 In accordance with government guidance when considering future planning applications for aggregates working the starting point will always be to consider each planning application on its own merits. In doing so we will always consider issues such as the need for the specific mineral and economic considerations, positive and negative environmental impacts and cumulative impacts. However, where the landbank is more than adequate and sufficient to meet longer term needs, unless explicit provision is recognised as being needed in this Plan or identified within the Joint LAA, applicants seeking planning permission for new aggregate workings will always need to provide robust reasons as to why further working is necessary and demonstrate that the planning benefits of the proposal
178 In addition it should be noted that there are also more than sufficient permitted reserves within County Durham's aggregate quarries to meet future need over the plan period, based upon the recommended sub-regional apportionment for both crushed rock and sand and gravel for County Durham derived from the Government's June 2009 National and Regional Aggregate Supply Guidelines. The extent of future total demand for crushed rock and sand and gravel provision will be recalculated on an annual basis through the council's Local Aggregate Assessment. 179 The landbank figure for both crushed rock and sand and gravel has been calculated using the annual demand figure set out within the current Joint LAA (April 2018). In essence a landbank is a stock of permitted reserves with planning permission for mineral extraction. It includes all aggregate sites with planning permission for future working but does not include currently dormant sites where a new scheme of modern working and restoration conditions are required under the Planning and Compensation Act 1991 or the Environment Act 1995. The minimum length of the landbank reflects the time that is needed to obtain planning permission and bring replacement operations into full production.
County Durham Plan Preferred Options 221 County Durham Plan Preferred Options
outweigh any identified planning objections. Applicants will also have to demonstrate that the proposal accords with the locational approach to the working of the aggregate mineral concerned, that it does not add significantly to the total landbank of permitted reserves in the county and that there will be no unacceptable adverse impacts including cumulative impacts on either the environment or the amenity of local communities. In making any determination we will also consider the full range of planning benefits which could include a combination of:
The safeguarding or creation of new employment associated with the mineral extraction;
The contribution of new workings to increased sales where it can be demonstrated that further production is necessary to enable the annual demand provision figure to be met and it can be demonstrated that this cannot be met by existing sites;
Helping to ensure that competition in the supply of aggregates is maintained(180);
Enabling the continued production of non-aggregates as a byproduct of extraction such as clay for use in brick manufacture, engineering clay or agricultural lime; and
Securing the early cessation of working at a particular site and its early and high quality restoration, in exchange for new permitted reserves within an alternative site which has no unacceptable adverse impacts on either the environment or amenity of local communities.
5.502 Similarly, we will always consider the full range of planning objections which may include any direct, indirect and cumulative unacceptable adverse impacts upon either the county's environment or the amenity of local communities. The harm that additional working will have on the ability of County Durham's existing mineral sites to be worked and restored in accordance with their existing planning permissions will always be considered in the planning balance. In this regard it is important that existing mineral operators are provided with the confidence to justify investment in new plant and equipment and that any major investment decisions will secure a reasonable rate of return. Similarly, it is also important that residents' expectations are given due consideration and that sites are worked in accordance with the existing planning permissions whenever possible.
5.503 Government policy requires that we should ensure that a large existing landbank bound up in very few sites should not stifle competition. This is a complex matter and it must be stressed that the council has no control over the merger and acquisition strategies of private companies. At the end of December 2016 the crushed rock landbank in County Durham was distributed across fifteen sites in the ownership of six companies, although a significant proportion of the crushed rock landbank lies within seven sites which are within the ownership of three mineral operators. Similarly, the sand and gravel landbank in County Durham is distributed across five sites within the ownership of three mineral operators. However, we are not aware of any evidence to demonstrate that competition in the county is stifled. Indeed County Durham's six crushed rock aggregate companies and three sand and gravel companies supply successfully and compete with operators based within and supplying into Tyne and Wear, the Tees Valley and North Yorkshire. Furthermore, the results of the Competition Commission inquiry into the 'Operation of the Aggregates, Cement and Ready-mix Concrete Market' which were published in May 2013 are also pertinent and concluded that there were no adverse effects of competition in any market supplying aggregates in Great Britain.
5.504 Nevertheless, in order to accord with Government policy, through this Plan we must try to ensure that competition can be maintained. Where competition is raised by applicants as a reason in support of a proposal the Council will require conclusive evidence that competition is being stifled
180 In considering this issue the council will always consider the extent of permitted reserves within the applicants control within both County Durham and within the North East region as a whole. In addition the Council will consider competition on a regional basis.
222 County Durham Plan Preferred Options County Durham Plan Preferred Options
and that a proposal would help maintain competition in the long term. Given that County Durham's aggregate quarries operate on a regional level the council will require evidence that competition is being stifled at a regional level in order to give this issue any weight in the planning balance.
5.505 The maintenance of landbanks for the Plan period and beyond will depend on the availability of consistent, reliable and, where necessary, publicly available information of sufficient detail to enable the council to come to a considered judgement on the adequacy of the landbank. In order to ensure a robust and credible evidence base for future decision making, all new planning permissions and reviews of existing permissions under the Environment Act 1995 (or any statutory modification to or re-enactment of that Act) will be conditioned to require the annual submission of information detailing the extent of remaining permitted reserves and sales.
Magnesian Limestone
5.506 Magnesian limestone underlies most of East Durham and has traditionally been divided into the lower, middle and upper magnesian limestone(181). The most commercially important part is the lower magnesian limestone series (Raisby Formation), which outcrops along the escarpment of the East Durham Limestone Plateau between Pittington and Shildon. Within this part of the plateau there is a long history of quarrying which, together with both past and current quarrying activity has had a significant impact upon the area.
5.507 By scale of production, magnesian limestone is the most important mineral worked in County Durham today. Prior to the current economic recession approximately 2.5 million tonnes of magnesian limestone was extracted from County Durham's permitted magnesian limestone quarries and used for aggregate purposes every year, before falling to approximately 1.2 million tonnes in 2012. More recently we estimate that production of magnesian limestone for aggregate uses has risen to approximately 2 million tonnes in 2016 reflecting the recovery of the economy and demonstrating the ability of County's quarries to respond positively to increases in demand. The county's magnesian limestone quarries are also recognised as an important source of non-aggregate material(182).
5.508 Through work undertaken to prepare the Plan we have developed a comprehensive and robust evidence base which has enabled us to establish the overall composition of the crushed rock landbank. A significant proportion of the County's crushed rock landbank lies within the county's existing permitted magnesian limestone quarries. At the end of 2016 permitted reserves of magnesian limestone aggregate were estimated to be approximately 102 million tonnes. Available evidence provided by operators also indicates that many of the county's magnesian limestone sites also have a significant unrealised productive capacity. In overall terms we consider that these sites will be sufficient to meet the future need for magnesian limestone over the Plan period.
5.509 Through the call for sites undertaken through the Issues and Options consultation three proposals for further magnesian limestone were received and have been considered. The preferred approach was to allocate Thrislington Quarry West of the A1(M) to allow the recovery of 5.4 million tonnes of previously permitted reserves. However, following the submission of a planning application in 2015, members resolved to grant planning permission in October 2017 and this permission has now subsequently been issued. Proposals were also received to extend both Witch Hill Quarry and Crime Rigg Quarry. The preferred approach to both of these sites is not to allocate them within the
181 The Magnesian Limestone has been traditionally divided into three formations the Lower Magnesian Limestone (Raisby formation), Middle Magnesian Limestone (Ford Formation) and Upper Magnesian Limestone (Seaham Formation, Roker Dolomite Formation and Concretionary Limestone Formation). 182 Until they were recently mothballed a process of calcination has been used at the kilns at Thrislington Quarry to process up to 400,000 tonnes of high grade dolomitic limestone per annum to produce a high grade product for use in the steel industry (see Policy 57 (The Conservation and Use of High Grade Mineral Resources)). Agricultural lime, which is used to correct the acidity of soil, has been produced at six quarries as a secondary product (Thrislington Quarry, Crime Rigg Quarry, Coxhoe Quarry, Aycliffe Quarry, Witch Hill Quarry and Bishop Middleham Quarry). In recent years reported sales of agricultural lime have been approximately 200,000 tonnes per annum, with 220,303 tonnes being sold in 2009, 202,248 tonnes in 2010, 205,261 tonnes in 2011, 120,377 tonnes in 2012, 177,445 in 2013, 200,320 in 2014 and 217,000 in 2015.
County Durham Plan Preferred Options 223 County Durham Plan Preferred Options
Local Plan. The reasons as to why both sites are not identified as strategic sites within this Plan are set out within the Technical Report: Potential New Mineral and Waste Sites in County Durham (June 2018).
5.510 The County Durham Minerals Local Plan (MLP) adopted in December 2000 set a strategy for the working of quarries on the magnesian limestone escarpment in County Durham and, with the exception of making explicit provision for further high grade workings, set a presumption against future new working and extensions. This approach reflected the significant extent of existing permissions at the time the MLP was adopted and the need to minimise the direct and cumulative impact of present and future workings. Despite significant extraction of magnesian limestone since the MLP was adopted, the basis of this approach remains valid today. In these circumstances permitting proposals for new or extended workings when there is an adequate landbank, which is well related to the main market areas, with significant permitted reserves remaining to be worked and when there is significant unrealised productive capacity, is not considered to be in the interests of the sustainable use of aggregate minerals, the sustainable exploitation of the County's mineral resources and the protection of the County's environment or the local amenity of local residents.
5.511 Agricultural lime which is used to correct the acidity of soil is produced at a number of magnesian limestone quarries in County Durham, where the primary purpose of the extraction has been the production of aggregates or for use in the steel and chemical industry. This often consists of the fines, which remain after magnesian limestone and high grade dolomite have been crushed and screened to meet specifications for aggregates or other markets. It can also be produced from specific upper horizons of the lower magnesian limestone succession which are unsuitable for aggregate purposes, as part of mineral workings to extract magnesian limestone aggregate.
5.512 In response to previous calls for new mineral sites, as part of work to identify potential allocations for new working. Two mineral operators proposed extensions to two existing magnesian limestone quarries in order to enable the production of agricultural lime, for both the domestic and export markets(183). Both proposed extensions also proposed the recovery of significant quantities of aggregates, from each quarry extension. The council's long standing approach was to consider both proposals as potential allocations within the Minerals and Waste Policies and Allocations document. However, following the submission of a planning application, the proposal by W&M Thompson to extend Bishop Middleham Quarry to recover 5.5 million tonnes of magnesian limestone of which 2.7 million tonnes would be for aggregate purposes and 2.8 million tonnes for agricultural lime was permitted in March 2015.
5.513 With the exception of Bishop Middleham Quarry which has produced consistent tonnages of agricultural lime for a number of years available information indicates that agricultural lime production has generally been small scale or inconsistent, with large quantities being produced in one year followed by small quantities or no production the following year. For example, records show that Witch Hill Quarry last produced small quantities of agricultural lime in 2005. However, following the grant of planning permission to enable the extension of Bishop Middleham Quarry it is now clear that this quarry in association with other quarries on the East Durham Plateau will be able to maintain the supply of agricultural lime consistent with previously reported levels of sales(184).
183 W & M Thompson proposed a 5.5 million tonnes extension to Bishop Middleham Quarry and Sherburn Stone Co Ltd (now owned by Breedon) proposed a 5 million tonnes extension to Witch Hill Quarry. Both site allocation proposals initially proposed that half of the proposed reserves would be recovered for agricultural lime and half for aggregates. 184 Following the grant of planning permission to extend Bishop Middleham Quarry in March 2015, and taking into account other information, the council's best estimate of dedicated reserves suitable for use for agricultural lime, is that approximately 4.4 million tonnes of reserves remain available for extraction in County Durham. This includes at least 2.8 million tonnes at Bishop Middleham Quarry and further reserves at Witch Hill Quarry, Crime Rigg Quarry and at Running Waters Quarry. Through a submission made as part of the ROMP at Witch Hill Quarry in 2015 it is understood that the quarry contains 3,125,000 tonnes of recoverable mineral. It is assumed that 50% of this material would be suitable for agricultural lime with the remainder suitable for aggregates.
224 County Durham Plan Preferred Options County Durham Plan Preferred Options
5.514 Given the close association of aggregate working and agricultural lime production any proposal for further agricultural lime production which also includes aggregate production must be determined in accordance with Policy 51 (Meeting the Need for Primary Aggregates).
Carboniferous Limestone
5.515 Carboniferous limestone naturally occurs in West Durham and outcrops fairly continuously along the sides of Weardale above Frosterley and to the south of Barnard Castle along the A66. Although similar in some respects to magnesian limestone, carboniferous limestone often differs in some of its physical properties. In particular, it tends to be harder and more durable than magnesian limestone and therefore suited to more heavy duty uses, for example in road building and sea defence works. By volume it is the second most important mineral worked in the county today. Prior to the economic downturn approximately 900,000 tonnes was extracted from County Durham's four active quarries every year. Using more recent information provided by operators, we now estimate that production of carboniferous limestone for aggregate use was approximately 700,000 tonnes in 2016.
5.516 Planning to maintain supplies of carboniferous limestone is a major challenge. For many years no information has been available on the extent of permitted reserves or sales(185). However, through work to develop an evidence base, we have been able to identify the overall contribution that the county's existing carboniferous limestone sites make to overall crushed sales and the extent of remaining permitted reserves within individual sites. We estimate that on 31st December 2016, approximately 11.8 million tonnes, (approximately 9% of the county's overall crushed rock landbank) remain within the county's four remaining carboniferous limestone sites.
5.517 Having considered the distribution and extent of permitted reserves of carboniferous limestone it is considered that without additional provision it is likely that all but one of the County's carboniferous limestone quarries will be exhausted during the first half of the Plan period. In quantitative terms it is calculated that an additional 5.3 million tonnes of carboniferous limestone will be required to be permitted to meet need to 2035, with a further 9 million tonnes of carboniferous limestone being required to meet longer term need and prevent the exhaustion of all permitted reserves by 2035. In considering proposals for allocations in the Minerals and Waste Policies and Allocations document and planning applications regard will need to be given to the distribution of permitted reserves between existing sites and ability of existing sites to maintain sales. Through the annual Joint LAA we will review our forecasts for further provision and seek to maintain a steady and adequate supply of this mineral.
5.518 Through the call for sites undertaken alongside the Issues and Options consultation four proposals for further carboniferous limestone were received and have been considered. To date a planning application for one of the proposed sites, a 20 hectare, 5 million tonne extension to Kilmondwood Quarry in Teesdale was considered by the Council in December 2016 and has now been granted planning permission.Our preferred approach in order to begin to meet the long term identified need for further carboniferous limestone working is to allocate land for further working as an extension to Hulands Quarry:
Hulands Quarry - A 20 hectare eastern extension would provide 7.2 million tonnes of mineral. At a proposed annual scale of output of 300,000 tonnes per annum, the extension would provide for 24 years of extraction. It is intended that mineral working would commence in 2024 following the exhaustion of permitted reserves within the existing quarry. Potentially, these permitted reserves could be sufficient to enable working to continue to the late 2040's thereby providing a long term source of supply of this mineral.
185 Up until 2002 the North East Regional Aggregates Working Party's Annual Aggregates Monitoring Reports contained information on the extent of permitted reserves and sales for carboniferous limestone.
County Durham Plan Preferred Options 225 County Durham Plan Preferred Options
5.519 In addition to this extension proposal the council has also received proposals for two extensions to Heights Quarry near Eastgate in Weardale and the reopening of a closed quarry site called Washpool Craggs on Bolihope Common between Stanhope and Middelton-in-Teesdale. The reasons as to why both sites are not identified as strategic sites within this Plan are set out within the Technical Report: Potential new mineral and waste sites in County Durham.
5.520 Through the Issues and Options consultation the Council consulted upon the locational strategy for further working of carboniferous limestone. We have considered these responses and the findings of the Sustainability Appraisal upon the Plan and taken into account a number of other considerations and while we accept that mineral resources can only be worked where they occur, we consider that there is significant merit and policy support to seek to guide future working over the plan period to locations outside and which do not adversely impact upon the North Pennines Area of Outstanding Natural Beauty and European and nationally important biodiversity sites. This approach will not preclude all mineral working within these areas, however, where proposals are brought forward within or adjacent to the AONB, it will require operators to demonstrate that their proposals meet the tests for major development as outlined in the council's AONB policy. Similarly, mineral operators will need to demonstrate, in particular, that their proposals will not have an adverse impact upon European and nationally important biodiversity sites. In the medium to long term it should also be noted that future permitted reserves and sales may become available, should new modern working and restoration conditions at Harrow Bank and Ashy Bank Quarry(186) in Weardale be agreed. However, as the timescale for the working of this site lies outside of the council's control no reliance is placed upon this site.
Dolerite
5.521 Dolerite is found as intrusions into the carboniferous limestone rocks in the west of the county. It is exceptionally hard and durable and therefore an important source of aggregate for the top wearing course of roads which have to withstand heavy volumes of traffic. It is also used as a concrete aggregate and in the construction of sea defences. Currently, there is only one quarry producing dolerite in the county, Force Garth Quarry in Teesdale. There are three dormant dolerite quarries (Park End, Crossthwaite and Middleton Quarry) where working could theoretically resume, following the agreement of new modern working and restoration conditions by the council under the provisions of the Environment Act 1995 (or any statutory modification to or re-enactment of that Act) and subject to permitted reserves remaining.
5.522 Through the Issues and Options consultation the council consulted upon whether any further working is justified. A small number of comments were received. We have considered these responses and the findings of the Sustainability Appraisal upon the Plan and taken into account a number of other considerations including the location of the resource and availability of existing permitted reserves, and have also had further regard to the requirements of national policy in relation to the protection of Areas of Outstanding Natural Beauty and European and nationally important biodiversity sites.
5.523 In considering how future supplies of this mineral can be maintained, given the extent of permitted reserves at Force Garth Quarry, (estimated at approximately 18 million tonnes within the current working area and recent sales approximately 150,000 tonnes per annum), more than sufficient permitted reserves of this mineral exist to meet the long term needs for this mineral without the grant
186 In May 2007 Tarmac Northern Ltd (now known as Tarmac) submitted an Environmental Statement and a revised schedule of working and restoration conditions to the council, proposing to work part of this site in order to extract 3,750,000 tonnes of carboniferous limestone from 30 ha of the 76.4 ha permission area over a 15 year period. Further information has been requested before the submission can be progressed. Once a revised schedule of working and restoration conditions have been issued then the reserves subject to the new scheme of working and restoration conditions will be considered as part of the county's crushed rock landbank. Please note that the council has previously been advised that this site contains nearly 9.5 million tonnes of carboniferous limestone. It is assumed that the operator would seek to work the remaining reserves in future years.
226 County Durham Plan Preferred Options County Durham Plan Preferred Options
of any further planning permissions in the Plan period(187). In terms of other additional sources of supply, proposals for further working including at dormant sites would require a separate assessment under the Habitats Directive. However, in the long term if it were not possible to extract dolerite in County Durham it is possible that the need for this mineral would have to be met from quarries outside of County Durham.
Sand and Gravel
5.524 There are two main types of sand and gravel worked as an aggregate in County Durham: basal permian sand which outcrops at the foot of the magnesian limestone escarpment and then extends at depth under the overlying magnesian limestone; and fluvial and glacial sand and gravel which is more widespread in its occurrence. In contrast to the position a number of years ago where a shortfall in permitted reserves was identified and it was forecast that significant new planning permissions would be necessary to meet identified need, revised forecasts based upon the latest information indicatethat there is now no quantitativeneed to grant new planning permissions until towards the end of the Plan period. This is due to:
An upward reassessment of permitted reserves at Thrislington Quarry and at Old Quarrington and Cold Knuckles Quarry;
Planning permission being granted in; November 2011 for new working including a small extension to Crime Rigg Quarry which also allows the full recovery of mineral previously sterilised; August 2012 for an extension to Old Quarrington and Cold Knuckles Quarry; and August 2013 for a new site at Low Harperley east of Wolsingham; and
A new scheme of working and restoration conditions being issued in August 2011 under the Environment Act 1995 to a site known as Hummerbeck near West Auckland.
5.525 Taking into account the additional permitted reserves which have become available in recentyears and the potential productive capacity of the County's existing sand and gravel sites, which significantly exceeds both recent and historical production levels over the last ten years, we now believe that more than sufficient sand and gravel will be available to enable County Durham to meet its own needs for sand and gravel and to make an appropriate contribution to meeting the wider regional need in the period up to 2035. We also believe that County Durham's five sand and gravel sites should be able to maintain sales at a level which is more than sufficient to meet the annual demand provision figure as set out in the Joint LAA 2018.
5.526 Nevertheless, having considered the distribution of permitted reserves across County Durham's five sand and gravel sites, we recognise that there maybe a need to extend the period of working at existing sites in order to allow the full recovery of existingpermitted reserves. For example, this is likely to be required at Old Quarrington and Cold Knuckles Quarry and potentially at Crime Rigg Quarry. In addition we also recognise that there may be circumstances where further working may be justified in order to avoid sterilisation by allowing the concurrent working of sand and gravel in association with any overlying mineral; or the prior extraction of sand and gravel in advance of other development which is either subject to planning permission or allocated in the Plan.
187 The majority of the Force Garth permission is designated as part of the Moor House-Upper Teesdale SAC and North Pennines Moors SPA under the EU Habitats and EU Wild Birds Directive. Until recently this had led to uncertainty over the future of this quarry. While the periodic review of this site under the Environment Act is ongoing the County Council has now concluded the Regulation 63 Review under the Conservation of the Habitats and Species Regulations 2010 (as amended). It has been concluded that the proposed working will have some affect but no likely significant effect on the integrity of the European designated sites either alone or in combination with other mineral consents.
County Durham Plan Preferred Options 227 County Durham Plan Preferred Options
5.527 Through the call for sites undertaken through the Issues and Options consultation three proposals for further sand and gravel working were received and have been considered. Our preferred approach was to allocate land for additional sand working at Thrislington Quarry in order to allow the full recovery of a quantity of reserves equivalent to that which was previously permitted. However, following the submission of planning application in 2015, members resolved to grant planning permission in October 2017 and this permission has now subsequently been issued(188). Additional proposals to allocate a further 6.5 million tonnes of sand at Thrislington Quarry and 750,000 tonnes of sand via a northern extension to Crime Rigg Quarry will not be allocated in the Local Plan. The reasons as to why both sites are not identified as strategic sites within this Plan are set out within the Technical Report: Potential new mineral and waste sites in County Durham.
5.528 Through the preparation and production of the annual Joint LAA we will monitor the overall extent of the sand and gravel landbank, its adequacy and its distribution across County Durham's sand and gravel quarries. If necessary, we will identify the need for further planning permissions to be granted. However, on the basis of the extent and adequacy of the sand and gravel landbank, we currently do not anticipate that there will be a need for any further planning permissions to be granted until towards the end of the Plan period. Through the preparation of the Minerals and Waste Policies and Allocations document we will consider proposals for new allocations for sand and gravel working and we will seek to allocate environmentally acceptable sites to meet longer term need. We will do this in order to provide a degree of certainty as to where new or extended sand and gravel workings may be permitted in the long term in order to ensure long term continuity of supply.
5.529 Through the Issues and Options report the council consulted upon the locational approach to the working of sand and gravel. A small number of comments were received. We have considered these responses, the findings of the Sustainability Appraisal upon the Plan and taken into account a number of other considerations including the location of the sand and gravel resource, the extent and distribution of existing permitted reserves, operator proposals for new working, environmental considerations and market considerations. It is clear that the county's basal permian sand resource is an important resource, well related to the markets in the North East and has potential to sustain significant additional working into the long term subject to environmental acceptability of individual proposals, in particular hydro-geological impacts upon groundwater resources and visual and landscape impact issues. The locational strategy for longer term sand and gravel working will be to prioritise the working of allocations for further basal permian sand extraction from beneath the floor of existing magnesian limestone quarries, followed by the lateral extension of existing magnesian limestone quarries, or via extensions to other sand and gravel sites or new sites outside of environmentally important areas. If new allocations are made in the future as extensions to existing sites, planning permission will only be subsequently granted where it can be demonstrated that additional permitted reserves are required to maintain continuity of supply from the existing quarry once the existing permitted reserves are substantially worked.
188 Tarmac's proposals at Thrislington West Quarry included (1) the allocation of the quarry to enable the extraction of 5.4 million tonnes of magnesian limestone and 2.4 million tonnes of basal permian sand from specific areas of the quarry and (2) the allocation of a further area within the quarry void to allow the extraction of an additional 6.5 million tonnes of basal permian sand. Previously, in January 2015 Tarmac submitted a planing application for the extraction of 5.4 million tonnes of remaining magnesian limestone reserves in Thrislington West Quarry and 2.4 million tonnes of basal permian sand, which was equivalent to the quantity previously permitted, but from a revised working area. Tarmac requested that the Council consider both allocations while simultaneously considering the planning application. The planning application was subsequently considered by the Council in October 2017 and planning permission was issued in 2018.
228 County Durham Plan Preferred Options County Durham Plan Preferred Options
How will the Policy be monitored?
Indicator:
1. Crushed Rock land bank (years) and the extent of crushed rock reserves (tonnes) with planning permission
2. Crushed rock sales (tonnes) per annum
3. Sand and gravel land bank (years) and the extent of sand and gravel reserves (tonnes) with planning permission
4. Sand and gravel sales per annum (tonnes)
Target:
1. To maintain at least a minimum 10 year land bank of crushed rock
2. To maintain sufficient productive capacity to enable County Durham's crushed rock quarries to maintain annual sales at the annual demand requirement figure specified in the annual Local Aggregate Assessment
3. To maintain at least a minimum 7 year land bank of sand and gravel
4. To maintain sufficient productive capacity to enable County Durham's sand and gravel quarries to maintain annual sales at the annual demand requirement figure specified in the annual Local Aggregate Assessment
Question 58
This is our preferred policy. Do you have any comments?
Policy 52 - Brickmaking Raw Materials
Policy 52
Brick Making Raw Materials
Proposals for new workings to meet the raw material needs of brickworks in County Durham will be permitted where:
County Durham Plan Preferred Options 229 County Durham Plan Preferred Options
a. They are required to maintain a stock of permitted reserves and that this need cannot be met from an existing permission associated with the brickworks(189); and
b. There will be no unacceptable adverse impacts either on the environment or on the amenity of local communities.
Proposals for new workings which are intended to serve brickworks outside of County Durham will only be permitted where:
c. They are required to maintain a 25 year stock of permitted reserves and this need cannot be met from an existing permission or allocation related to the associated brickworks;
d. It can be demonstrated that the raw material needs cannot be met from a site closer to the brickworks; and
e. There will be no unacceptable adverse impacts either on the environment or the amenity of local communities.
The provision of reserves from dedicated on-site pits will be preferred. Accordingly,proposals for new standalone sites will only be permitted where it can be demonstrated that provision can not be met from dedicated on-site pits.
Where planning permission is granted, planning obligations or conditions will be used to restrict the use of the brick making raw material to the associated brickworks.
Proposals to vary the time period of working at existing workings will be permitted where it can be demonstrated that permitted reserves would otherwise remain unworked at the end of the existing permission and provided that there will be no unacceptable adverse impacts either on the environment or the amenity of local communities.
5.530 County Durham is an important source of brick making raw materials including coal measures mudstone, glacial clay and fireclay(190). County Durham contains one operational brickworks(191). Operationally, Todhills brickworks is reliant on coal measures mudstone won from a dedicated clay pit adjacent to the brickworks, supplemented by supplies of fireclay from surface mined coal sites. The Union Brickworks operated by Ibstock Brick Ltd, is at Birtley in Gateshead, although the quarry (Birtley Quarry) which supplies the brickworks lies within County Durham.
5.531 Ensuring continued supply of brick making raw materials is essential in ensuring that existing brickworks can continue to produce the construction materials necessary to deliver new built development both in the county and in the wider region. We will therefore seek to maintain supplies of coal measures mudstone to meet the long term supply requirements of the operational brickworks in the county and will work with Gateshead Borough Council under the Duty To Cooperate to meet the supply requirements of the Union Brickworks for glacial clay. However, in accordance with the
189 Provision will be made to maintain a minimum supply of feedstock equivalent to a 25 year stock of permitted reserves for each brickworks in the County. 190 Due to the close association of fireclay and coal seams and that surface mined coal sites provide one of the few viable sources of fireclay from which they are derived as a byproduct proposals to extract fireclay will normally be considered under Policy 53 (Surface Mined Coal and Fireclay). 191 For many years there have been two brickworks in County Durham, (Eldon and Todhills), both operated by Wienerberger. However, Eldon Brickworks was mothballed by its operator in 2008 and was formally closed in 2012.
230 County Durham Plan Preferred Options County Durham Plan Preferred Options
existing pattern of working, in making future provision our preference is that further reserves should be obtained wherever possible from dedicated on-site pits adjacent to the brickworks. This is considered important in order to help minimise and restrict environmental impacts.
5.532 Long Lane Quarry currently meets the operational needs of Todhills brickworks but is due to cease mineral extraction in 2018 and so cannot provide a 25 year landbank or meet longer term needs. In order to meet long term needs the intention of the Plan is to allocate an area of search to the south of the brickworks.
5.533 Birtley Quarry currently meets the operational needs of the Union brickworks which lies at Birtley within Gateshead Borough. The current permission at Birtley Quarry was issued in August 2017 and will enable the needs of the Union Brickworks for glacial clay to be met until 2044. In the long term in order to maintain a 25 year stock of permitted reserves it is recognised that potentially further provision may be needed from within County Durham or an alternative site in Gateshead Borough. In this respect clay of suitable quality for brick manufacture is currently safeguarded at Lamesley in the Newcastle/Gateshead One Core Strategy(192).
5.534 Interest in sourcing brick making raw materials from County Durham to meet the needs of other brickworks in the region cannot be discounted. Given that it is generally desirable that brick making raw materials should be extracted as close as practicable to the brickworks that it supplies, on this basis in addition to environmental and amenity considerations proposals must demonstrate that no closer site exists closer to the intended brickworks where the material is to be used.
How will the Policy be monitored?
Indicator:
1. Number of years of approved reserves at each brickworks in County Durham
Target:
1. To maintain a minimum 25 year stock of permitted reserves for each brickworks in County Durham
Question 59
This is our preferred policy. Do you have any comments?
192 Paragraph 13.16 of the Newcastle/Gateshead 'One Core Strategy - Planning For The Future Core Strategy and Urban Core Plan', which was adopted on 26 March 2015 , states, 'The only potentially workable deposit of brick clay is located at Lamesley in Gateshead and is safeguarded'.
County Durham Plan Preferred Options 231 County Durham Plan Preferred Options
Policy 53 - Surface Mined Coal and Fireclay
Policy 53
Surface Mined Coal and Fireclay
Proposals for the extraction of coal and/or fireclay should not be granted permission unless:
a. They do not have an unacceptable adverse impact on either the environment or the amenity of local communities, or can be made acceptable by planning conditions or obligations; or
b. They provide national, local or community benefits which clearly outweigh the unacceptable adverse impacts of the proposal to justify the grant of planning permission. In assessing such benefits particular regard will be had to:
1. The economic benefits of the proposal including its contribution to the maintenance of high and stable levels of economic growth through the provision of domestically produced coal for power generation and other sectors of the UK economy and the employment generated through the working, restoration and after-use of the site;
2. The environmental benefits of the proposal in particular those that can be delivered through the high quality restoration and after-use of the site;
3. The directly related local and community benefits generated by the proposal which will improve the economic and social well being of the local communities affected by the proposed development;
4. The contribution of the proposal towards the comprehensive reclamation of areas of derelict or contaminated land, or the remediation of coal mining legacy issues;
5. The avoidance of the sterilisation of mineral resources in advance of development which is either subject to a planning permission or allocated in the County Durham Plan or a Neighbourhood Plan and is in accordance with Policy 56 (Safeguarding Mineral Resources); and
6. The need for clay to meet the ongoing needs of local brickworks or if this is not possible, other brickworks regionally or nationally.
All proposals for surface coal mining should avoid the unnecessary sterilisation of fireclays and brickclays.
In order to minimise the environmental impacts of surface coal extraction and provide certainty, the piecemeal working of surface mined coal sites will not be permitted.
232 County Durham Plan Preferred Options County Durham Plan Preferred Options
5.535 County Durham contains extensive areas of land which are underlain by coal, and for many years has been an important source of both deep mined and surface mined coal(193). Like many other coalfield areas, the deep mined industry in County Durham declined during the second half of the 20th Century and the last two deep mines closed in 1993(194). However, during the same period large areas of the exposed coalfield within County Durham were worked by surface mined methods. Despite this long history of working the British Geological Survey believe that large coal reserves still remain within the county.
5.536 Unlike other minerals such as aggregates where quantitative targets have been provided, past Government guidance(195) has been clear that it is not for the planning system to set limits on the scale of production. Instead, for new surface mined coal working, it has been for individual operators to determine the level of output they wish to aim for in light of market conditions and for Councils to determine the acceptability of individual projects through the development management process. Nevertheless, over the Plan period we do not consider that the scale of surface mined coal working will significantly increase over existing levels. Instead we expect that the scale of extraction will be relatively steady with no more than a small number of sites operating at any one time.
5.537 In locational terms, we will seek to provide a measure of certainty to both operators and the public by considering potential surface mined coal allocations in the preparation of the Minerals and Waste Policies and Allocations document. In addition the policies map which accompanies the Plan identifies the extent of the exposed coalfield and the key environmental designations across the county.
5.538 The exposed coalfield coincides with the most densely settled and populated part of the county and many communities and the local environment in parts of the exposed coalfield have experienced the cumulative impacts of a succession of sites over many years. However, it is acknowledged that the limited scale of working in recent years now means that the scope for cumulative impacts from other surface coal sites has now significantly reduced and indeed many modern surface mined coal schemes incorporating mitigation measures may be able to be worked in an acceptable manner whilst delivering high quality restoration schemes which will benefit the local environment.
5.539 Within the exposed coalfield there are large areas which have in the past been recognised for their landscape value and previously designated as Areas of High Landscape Value (AHLVs). While the Plan does not intend to retain these local designations the attributes underpinning them have been captured inthe County Durham Landscape Character Assessment and are reflected in the County Durham Landscape Strategy. Proposals for new surface mining will need to have regard to the objectives of the Landscape Strategy in accordance with Policy 41 (Landscape Character).
5.540 Within the exposed coalfield there are also small areas designated as Special Protection Areas and Special Areas of Conservation under the EU Wild Birds Directive and EU Habitats Directive. In accordance with the Conservation of Habitats and Species Regulations 2010 (as amended) a Habitats Regulations Assessment (HRA) will need to be undertaken where a development has the potential to have an adverse effect upon a Natura 2000 site by virtue of its nature and the site's particular sensitivities. Developers may be required to provide information to inform the screening and/or Appropriate Assessment stages of the HRA. Where the HRA cannot ascertain that a development either on its own or in combination with other plans or projects would not have adverse impacts upon the integrity of a Natura 2000 site and cannot be adequately mitigated planning permission will be refused. In these instances outweighing local or community benefits will not apply.
193 Within County Durham the coalfield chiefly covers area east of the Pennine Uplands. The west of the coalfield, where the seams lie close to the surface or actually outcrop is known as the exposed coalfield. Further east the, the coal measures are overlain by a thick overburden of rock to form the concealed coalfield. 194 The last two deep coal mines in County Durham, Easington and Seaham/Vane Tempest ceased production in 1993. 195 Minerals Planning Guidance Note 3 (MPG3) 'Coal Mining and Colliery Disposal', March 1999.
County Durham Plan Preferred Options 233 County Durham Plan Preferred Options
5.541 In instances where proposals for new working are considered to have an unacceptable adverse impact upon the environment or the amenity of local communities and can not be made acceptable by planning conditions or obligations we will always consider whether there are any outweighing national, local or community benefits. A detailed policy on the benefits of minerals extraction will be including within the Minerals and Waste Policies and Allocations document.
5.542 We acknowledge that the nature of modern surface coal mining involving the movement of large amounts of material makes it a particularly suitable method of addressing contaminated and/or derelict land and addressing the stabilisation of unstable ground. Although only limited amounts of derelict land remain within the coalfield, there may be scope to allow new working as a means of reclaiming such land without the public expense that would otherwise arise. It is also possible that new areas of dereliction may arise during the Plan period which require reclamation. In assessing any such applications it will be important to ensure that the area proposed for extraction fairly and reasonably relates to the extent and nature of dereliction. Similar benefits may arise in allowing surface mined coal extraction where it would enable the reclamation of contaminated land. As with derelict land it will be important to ensure that any area proposed for extraction fairly and reasonably relates to the extent and nature of contamination.
5.543 The avoidance of unnecessary sterilisation of minerals, wherever possible, will help to reduce pressure on other sources of supply, and will help to ensure that mineral reserves are not, in effect, wasted. Such benefits from prior extraction of coal should be realised, wherever they can be accommodated in an environmentally acceptable manner, provided that the ensuing development is not prejudiced or delayed significantly. Ideally, in order to avoid potential problems of delay, any potential surface coal working should be included in an overall programme for the development.
5.544 Extensions to surface mined coal workings, or a series of proposals in the vicinity of particular communities, add to the impacts from sites, and prolong the uncertainty and disruption for those affected. These problems are compounded by the difficulties of achieving the most appropriate restoration for an area in overall terms from a series of fragmented proposals. Given their short life, relative to other kinds of mineral extraction, piecemeal workings of this kind should normally be avoided, and an outline of any proposed future workings in an area should be included in the original application. In some circumstances, and in consultation with local communities, it may be possible to agree in advance a programme of working sites in an area to achieve their exploitation in an acceptable manner. Where previously unforeseen circumstances, for example unexpected geological faulting, lead to an application for an extension, any such proposal will be considered under Policy 53 (Surface Mined Coal and Fireclay).
5.545 Surface mined coal seams generally occur in conjunction with other minerals, notably fireclay and brickclay. In the interests of sustainable development, the efficient use of mineral resources is desirable and it is important that the opportunity to work these other minerals commercially is fully explored and exploited. The co-ordinated working of mineral deposits can reduce the need to extract minerals elsewhere and prevent the unnecessary sterilisation of valuable mineral resources. In recent years a number of proposals for surface mined coal extraction have proposed the recovery of fireclay as part of the proposed scheme of working but it has been subsequently found that the mineral is not of saleable quality. Accordingly, to provide certainty prior to the determination of any proposal and in order to help enable to ascertain the weight that should be applied to the concurrent working of fireclay and brickclay as a benefit from surface mined coal sites we will always require evidence of the quality of the material and its intended market.
5.546 The brickworks operating in County Durham have particular requirements for fireclay resources which are best provided by local supplies. Where fireclay is extracted, it is important that priority is given to local brickworks to utilise the resource so that current production and employment levels are
234 County Durham Plan Preferred Options County Durham Plan Preferred Options
maintained. It is recognised that the local brickworks may not be able to use the fireclay produced (at any given time) for various reasons and it is imperative that fireclay supplies are not wasted. When this occurs, the resource should be utilised by other brickworks regionally or nationally.
5.547 In the event that no brickworks can utilise the fireclay resource, every effort should be made to avoid the unnecessary wastage of the mineral by the stockpiling or storage of the mineral for future use. It is recognised that there is the potential to store or stockpile fireclay both on and off-site, above and below ground, but that each of these options have particular problems. Extensive testing of the characteristics and firing qualities of the fireclay will need to be investigated by the operator prior to any decision on its subsequent storage, stockpile or replacement in the void. This is a matter which will need to be assessed on an individual site basis and would be subject to planning conditions and/or obligations attached to any planning permission. This approach should provide fireclay to assist in meeting local, regional and national demand for this mineral.
How will the Policy be monitored?
Indicator:
1. Quantity of new permitted reserves of coal and fireclay
Target:
1. No Target
Question 60
This is our preferred policy. Do you have any comments?
Policy 54 - Natural Building and Roofing Stone
Policy 54
Natural Building and Roofing Stone
Planning permission will be granted for proposals for new and extensions to existing natural building and roofing stone quarries where it can be demonstrated that it will help maintain a steady, adequate and diverse supply of natural building and roofing stone and provided that there will be no unacceptable adverse impacts on either the environment or the amenity of local communities.
Locational Approach
In order to avoid unacceptable adverse impacts, proposals for natural building and roofing stone working which are considered to be major mineral development, due to their scale and nature, should not normally be located within the North Pennines AONB or in locations which could
County Durham Plan Preferred Options 235 County Durham Plan Preferred Options
adversely affect the setting of the AONB. All such proposals will be required to meet the tests for major development and the requirements of Policy 40 (North Pennines Area of Outstanding Natural Beauty).
Proposals for natural building and roofing stone working within the AONB, which are not considered to be major mineral developments, should demonstrate that they contribute to the achievement of, or are consistent with, the North Pennines AONB Management Plan and North Pennines AONB Planning Guidelines. Such proposals will:
a. Be carefully assessed with great weight being given in decisions to the conservation of the natural beauty of the landscape and countryside, the conservation of wildlife and the cultural heritage and the need to avoid adverse impacts on recreational amenity; and
b. Need to demonstrate that the stone is required primarily to meet the requirements arising from new build or repair work within the AONB, or is for the repair of important designated or undesignated buildings or structures which rely on the proposed source of stone as the original source of supply, or as providing a directly equivalent product which can no longer be provided from the original source supply.
All new planning permissions and reviews of existing permissions under the Environment Act 1995 will be conditioned to require the annual submission of information detailing the extent of remaining permitted reserves and sales.
5.548 Natural building and roofing stone is a traditional building material that has been extensively worked in County Durham for many years for a variety of purposes. These include general walling, building, paving, roofing, high quality architectural building stone and for the repair and maintenance of historic buildings and structures. The use of this material for construction has contributed to the distinctive local character of a number of areas within the county. It is also widely used in the North East of England and is also exported and used nationally.
5.549 There are six natural building and roofing stone quarries remaining in County Durham. With the exception of two sites (Cat Castle Quarry and Dunhouse Quarry), all are relatively small scale operations, with the overall scale of production being no more 500 to 2,500 tonnes per annum, and with a number being worked only intermittently. Planning to maintain supplies of natural building and roofing stone is a challenge. Unlike other minerals where recent information on production and permitted reserves is available, only very limited information is available(196).
5.550 While it is impossible to predict the scale of new working which might be needed over the the Plan period, we will seek to ensure that sufficient provision is made to enable a steady, adequate and diverse supply of natural building and roofing stone to be maintained to enable County Durham to meet its own needs whilst helping to contribute to meeting wider regional and national needs. Over the period to 2035 we expect that the county's existing natural building and roofing stone quarries will make a major contribution to meeting future needs for this material. However, it is recognised that further permissions will be required to ensure that supplies can be maintained at steady and adequate levels.
196 The Office of National Statistics (ONS) report Mineral Extraction in Great Britain PA 1007 reported that sales of natural building and roofing stone in County Durham were 26,000 tonnes in 2003, 23,000 tonnes in 2004, 7,000 tonnes in 2005, 24,000 tonnes in 2006 and 11,000 tonnes in 2007. In recent years ONS have not published any new County Durham specific sales data and as a result it is estimated that production in recent years may fallen to between 10-15,000 tonnes per annum.
236 County Durham Plan Preferred Options County Durham Plan Preferred Options
5.551 The sandstones of Carboniferous age (Namurian Sandstone) are recognised as the principal building stone resources in County Durham. These sandstones naturally occur in the west of the county much of which is designated as a nationally important Area of Outstanding Natural Beauty (AONB) and as nationally and internationally important areas of nature conservation importance. Given the importance of these designations in broad locational terms the strategy of the Plan will be to minimise environmental impacts from new working. This will be achieved by guiding proposals for major working to those parts of County Durham which lie outside and do not adversely impact upon the North Pennines AONB. Similarly, all proposals for new working will also be guided to locations which do not impact upon and lie outside of internationally and nationally important nature conservation sites. We believe that those parts of the county that lie outside the North Pennines AONB and internationally and nationally important nature conservation sites have the most potential to accommodate new natural building and roofing stone quarries, including those which require on site processing plant, without unacceptable adverse environmental impacts.
5.552 In line with the North Pennines AONB Management Plan 2014-2019 and specifically its vision and objectives and the North Pennines AONB Planning Guidelines(197) we do recognise that there may still be some scope for some further small scale working within the AONB in order to ensure the continued availability of local stone which will help enable the character of the landscape, buildings and settlements to be conserved and enable new development within the AONB to respect the special qualities of the North Pennines. In addition we also recognise that this stone may also constitute an important potential source of stone for the repair of important designated or un-designated buildings or structures or as the original source of supply, or as providing a directly equivalent product which can no longer be provided from the original source supply. All such planning applications will be carefully assessed with great weight being given to the conservation of the natural beauty of the landscape and countryside, the conservation of wildlife and the cultural heritage and the need to avoid adverse impacts on recreational amenity and tourism within the AONB.
5.553 In considering proposals for new working in line with the National Planning Policy Framework (NPPF) we will always recognise the small scale nature and impact of natural building and roofing stone quarries compared to aggregate quarries and the need for a flexible approach to the potentially long duration of planning permissions reflecting the intermittent or low rate of working at many sites.
How will the Policy be monitored?
Indicator:
1. Quantity of new permitted reserves granted
Target:
1. No Target
197 The North Pennines AONB Planning Guidelines sets out some of the forces for change affecting the North Pennines landscape. These include need to manage the piecemeal erosion of rural character in settlements and carefully managing the potential expansion of quarries for the extraction of local stone if the character of buildings and settlements is to be conserved and new development is to respect this character.
County Durham Plan Preferred Options 237 County Durham Plan Preferred Options
Question 61
This is our preferred policy. Do you have any comments?
Policy 55 - Reopening of Relic Natural Building and Roofing Stone Quarries
Policy 55
Reopening of Relic Building Stone Quarries for Heritage Projects
Proposals to temporarily reopen, on a time limited basis, relic natural building and roofing stone quarries, including those identified by Historic England through the Strategic Stone Study, or for new extraction adjacent to or close to these quarries to extract small quantities of stone required for heritage projects, will be permitted where it can be demonstrated that:
a. Records indicate the quarry was the original source of stone used in the construction of a historic building or monument or the stone is technically compatible with material in the structure to be repaired; or
b. The stone from the quarry is, or will be, required for restoration or conservation in the absence of viable alternatives; and
c. The stone can be worked and the site restored, taking into account the need to protect designated sites and without other unacceptable adverse impacts upon either the environment or uponthe amenity of local communities.
5.554 In conservation work, it is vital to obtain stone which matches the original in terms of its aesthetics, its mineral composition, density and its porosity. If not, the new stone could hasten the decay of the original building or structure and is unlikely to weather the same, therefore looking very different. To address these issues, Historic England have identified a number of relic natural building and roofing stone sites in County Durham through their work to prepare a Strategic Stone Study for England.
5.555 The National Planning Policy Framework (NPPF) requires local planning authorities to consider how to meet any demand for small scale extraction of building and roofing stone at, or close to, relic quarries needed for the repair of heritage assets, taking into account the need to protect designated sites. While we are not aware of any current or past demand for the reopening of disused quarries for this purpose, should proposals come forward to reopen disused natural building and roofing stone quarries, they will be required to meet stringent tests and, if permitted, will be very carefully controlled to minimise environmental and amenity impacts. Many relic quarries may be legitimately regarded as a heritage asset in their own right, perhaps due to a historic connection to associated historic buildings and conservation areas. In considering proposals to reopen relic natural building and roofing stone quarries identified by Historic England it will also be necessary to consider the scale of harm to, or loss of, the asset's significance and this should be weighed in relation to the wider public benefit of the proposed reopening and working of the site.
238 County Durham Plan Preferred Options County Durham Plan Preferred Options
How will the Policy be monitored?
Target:
1. Quantity of new permitted reserves granted on relic sites for natural building and roofing stone working
Indicator:
1. No Target
Question 62
This is our preferred policy. Do you have any comments?
Policy 56 - Safeguarding Mineral Resources
Policy 56
Safeguarding Mineral Resources
Planning permission will not be granted for non-mineral development that would lead to the sterilisation of mineral resources within a Mineral Safeguarding Area or which will sterilise an identified 'relic' natural building and roofing stone quarry as shown on Map C of the policies map document unless one of the following applies:
a. It can be demonstrated that the mineral in the location concerned is no longer of any current or potential value as it does not represent an economically viable and therefore exploitable resource;
b. Provision can be made for the mineral to be extracted satisfactorily prior to the non-minerals development taking place without unacceptable adverse impacts on either the environment or upon the amenity of local communities and within a reasonable timescale;
c. The non-minerals development is of a temporary nature that does not inhibit extraction within the timescale the mineral is likely to be needed;
d. There is an overriding need for the non-minerals development which outweighs the need to safeguard the mineral; or
e. It constitutes exempt development.
County Durham Plan Preferred Options 239 County Durham Plan Preferred Options
Unless the proposal is exempt development or temporary in nature all planning applications for non-mineral development within a Mineral Safeguarding Area must be accompanied by a Mineral Assessment of the effect of the proposed development on the mineral resource beneath or adjacent to the site of the proposed development. Where the mineral assessment has identified that mineral is of potential value and economic to extract, an assessment of the viability of the potential for prior extraction will be required. Where planning permission is granted for prior extraction conditions will be imposed to ensure that the site can be adequately restored to a satisfactory after-use should the following development be delayed or is not implemented.
5.556 Mineral resources are finite, and in accord with the basic principles of sustainable development, they must be protected to give future generations the best possible chance of meeting their own needs. The Plan will therefore safeguard known deposits of minerals and relic natural building and roofing stone sites that are, or may potentially become of economic importance within the foreseeable future, from unnecessary sterilisation by surface development through the designation of Mineral Safeguarding Areas (MSAs). Unlike other mineral planning designations which allocate land for development and where there is a varying degree of presumption that extraction may be appropriate, there is no presumption that resources defined in MSAs will be worked. The purpose of MSAs is not to preclude all other forms of development, but to make sure that mineral resources are adequately and effectively considered in land use planning decisions.
5.557 County Durham's MSAs have been developed in accordance with guidance published by the British Geological Survey (BGS) and by using mineral resource information provided by the BGS and the Coal Authority. Regard has also been had to the approach of adjoining Mineral Planning Authorities and consultation has been undertaken with both adjacent and distant mineral planning authorities, the minerals industry and their trade associations. County Durham's MSAs cover extensive areas of the county and will ensure that the safeguarding of mineral resources are effectively considered through the Plan and in the consideration of planning applications. In addition the policies map also identifies a number of 'relic' quarries identified by Heritage England's Strategic Stone Study which have in the past been worked to produce natural building and roofing stone. Proposals for new development which will sterilise 'relic' quarries will be considered, taking into account advice from the council's Design and Conservation Team. Further information on the minerals which are to be safeguarded are set out in Appendix D and are shown on Map C in the policies map document.
5.558 In order to determine planning applications for non-minerals development within a MSA it will be necessary for sufficient information to be submitted by the applicant to allow a decision to be made. Other than for development viewed as exempt, all other planning applications for non-minerals development within MSAs will need to be accompanied by a mineral assessment of the effect of the proposed development on the mineral resource beneath or adjacent to the site of the proposed development and where an economic resource is present, the consideration of prior extraction (198)). However, for some types of non-mineral development, it is recognised that the sterilising effect is negligible. Accordingly, exemption criteria have been identified where a mineral assessment will not be required, (please see Appendix C).
5.559 The prior extraction of safeguarded minerals will be encouraged in MSAs where it is necessary for non-mineral development to occur. However, whether prior extraction will be possible will be dependent upon a number of factors including whether this can be done without unacceptable adverse impacts on the environment and amenity of local communities and whether extraction is achievable within an acceptable timescale. In instances where planning permission is granted for prior extraction,
198 The requirement for a mineral assessment will be administered by including mineral assessments on the local list of information for mineral requirements. This will be based upon advice set out in Chapter 6 of the British Geological Survey Guide Mineral Safeguarding in England: Good Practice Advice, (2011). Further advice on mineral assessments is set out in Appendix C.
240 County Durham Plan Preferred Options County Durham Plan Preferred Options
planning conditions or obligations will always be imposed to ensure that the mineral resource can be adequately worked and the site restored to a satisfactory after-use should the following development be delayed or not implemented.
How will the Policy be monitored?
Indicator:
1. Number of eligible schemes, within the Mineral Safeguarding Area, that are supported by a Mineral Assessment
Target:
1. 100%
Question 63
This is our preferred policy. Do you have any comments?
Policy 57 - The Conservation and Use of High Grade Mineral Resources
Policy 57
The Conservation and Use of High Grade Mineral Resources
The extraction of high grade mineral resources, including high grade dolomite at existing quarries will only be permitted subject to appropriate planning conditions where:
a. The purposes for which their specific qualities are essential are demonstrated; and
b. Provided that there will be no unacceptable adverse impacts upon either the environment or the amenity of local communities.
It is expected that over the Plan period that supplies of high grade dolomite will be met from the existing planning permission at Thrislington Quarry East, east of the A1(M)(199) On this basis the High Grade Dolomite Reserve east of the A1(M), as shown on the policies map, will be protected from all mineral working.
Proposals for the further working of high grade dolomite resources will only be permitted where there is a need for high grade material which cannot be met through the use of lower grade material or higher grade material from existing planning permissions and it can be demonstrated
199 The Section 106 for Thrislington Quarry East, east of the A1(M) restricts the use of high grade dolomite for use as a sinter in the iron industry or processed by calcination and used in the refactory, chemical, magnesia, glass or steel industries as set out in Appendix 1 of the legal agreement or as agreed in writing between the council and the company.
County Durham Plan Preferred Options 241 County Durham Plan Preferred Options
that existing permitted reserves at Thrislington Quarry East, east of the A1(M) are insufficient to maintain a 15 year stock of permitted reserves, or a 25 year stock of permitted reserves where substantial investment in new kiln equipment is proved necessary.
5.560 Through Policy 56 (Safeguarding Mineral Resources) the approach of the Plan is to safeguard known locations of specific minerals of national and local importance through the designation of mineral safeguarding areas so that they are not needlessly sterilised by non mineral development. In addition due to the national significance and scarcity of a number of specific mineral deposits within the County, the Plan seeks to provide further specific protection. This approach is in line with the long term approach of the council to the conservation and use of high grade mineral resources as set out within the County Durham Minerals Local Plan (December 2000) and its predecessor the Magnesian Limestone Escarpment Plan (July 1986) both of which recognised the importance of reserves at Thrislington Quarry and identified the area to the east of the A1(M) as one of two areas in Great Britain, other than in Whitwell in Derbyshire, containing magnesian limestone (high grade dolomite) of suitable high quality for use in the steel and chemical industries. In addition, the County Durham Minerals Local Plan (December 2000) also recognised that high grade deposits of magnesian limestone (low iron high magnesia dolomite) suitable for colourless glass manufacture also exist at Hawthorn Quarry and these deposits are currently protected by legal agreement.
5.561 The long term protection of such areas is important as some industrial processes require high grade minerals in terms of their quality or purity such as high grade dolomite from the magnesian limestone escarpment, some of which has previously been used in the chemical, metallurgical and glass industries. Although mineral deposits will usually comprise material of varying qualities, it is important that these scarce resources are not used for more general purposes, such as construction aggregates, when lower grade alternatives are readily available. It is also important to ensure through the use of conditions and/or agreements that these resources are worked in the most efficient manner possible so that proper use can be made of their special qualities and that they remain available for future use. Although this approach primarily relates to high grade dolomite at present, industrial specifications may change and other minerals may be considered as high grade during the Plan period.
5.562 Following the granting of planning permission for an extension to Thrislington Quarry on land to the east of the A1(M) in July 2011 for a period of 32 years, more than sufficient high grade dolomitic limestone is now permitted to meet long terms needs(200). Accordingly, it is not anticipated that any further permissions to work this high grade material are likely to be required over the life of the Plan. However, in recognition of the possibility of further mineral being required beyond the Plan period an additional 'high grade dolomite reserve' will be specifically safeguarded and protected. It is considered important that high grade material is not used for more general purposes, such as construction aggregates, when lower grade alternatives are readily available. We shall ensure through the use of conditions and/or planning obligations that high grade mineral resources are worked in the most efficient manner possible so that proper use can be made of their special qualities and that they remain available for the future.
5.563 The National Planning Policy Framework (NPPF) advises that minerals planning authorities should plan for a steady and adequate supply of industrial minerals. It recommends that a stock of permitted reserves should be provided to support the level of actual and proposed investment required for new or existing plant and the maintenance and improvement of existing plant and equipment. For the cement industry it recommends a 15 year period to maintain existing plant, and a 25 year period to support a new kiln. We consider that it is reasonable to adopt these periods for other minerals whose primary processing requires substantial investment in kiln equipment.
200 A process of calcination (burning) has been used to produce a high grade product.
242 County Durham Plan Preferred Options County Durham Plan Preferred Options
How will the Policy be monitored?
Indicator:
1. Extent of high grade dolomite (land bank in years) at Thrislington Quarry East, east of the A1(M)
Target:
1. To ensure that additional permitted reserves of high grade dolomite are not released unless the extent of the landbank at Thrislington Quarry East, east of the A1(M is less than 15 years and that the purposes for which their specific qualities are essential can be demonstrated
Question 64
This is our preferred policy. Do you have any comments?
Policy 58 - Preferred Area for Future Carboniferous Limestone Working
Policy 58
Preferred Area for Future Carboniferous Limestone Extraction
Proposals for the winning and working of carboniferous limestone from land to the east of Hulands Quarry, within the Preferred Area as shown on the policies map, will be permitted subject to appropriate planning conditions/planning obligations where they are in accordance with Policy 51 (Meeting the Need for Primary Aggregates) and other relevant policies of the Plan and where:
a. They are accompanied by a scheme of phased working and a high quality restoration scheme which can be approved and which specifically:
1. Includes such advance and preparatory works as are deemed necessary including perimeter mounding/bunding and planting to safeguard the local landscape, environment and amenities of the local area whilst also minimising views into the sites from the strategic and local highway network; and
2. Delivers a range of environmental benefits including landscape enhancement and habitat creation; and
b. It can be demonstrated that there will be no unacceptable adverse impacts on either the environment or the amenity of local communities.
County Durham Plan Preferred Options 243 County Durham Plan Preferred Options
5.564 In order to assist in the steady and adequate supply of carboniferous limestone and the delivery of Policy 51 (Meeting the Need for Primary Aggregates) a Preferred Areas for carboniferous limestone working is allocated as an extension to Hulands Quarry in Teesdale. Subject to planning permission being granted this allocation would enable this quarry to make a significant contribution to the identified need for further carboniferous limestone working from County Durham over the plan period(201). In addition the carboniferous limestone produced at this quarry will provide a source of aggregate to produce coated roadstone and ready mixed concrete products.
5.565 Given the location of this preferred area within an area identified in the County Durham Landscape Strategy (2008) as a Landscape Conservation Priority Area with a strategy of 'conserve and restore' and near to, but lying outside of the North Pennines Area of Outstanding Natural Beauty and adjacent to the A66(T), it will be essential that any scheme of working and restoration is carefully designed to ensure that high environmental standards are achieved, through a phased scheme of working and restoration which minimise adverse impacts upon the environment and the amenity of local communities including cumulative impacts and delivers a range of environmental benefits including landscape and biodiversity enhancement measures. In particular, it will be necessary to consider permanent perimeter mounds to the A66(T) augmented by tree planting to limit views into the site from the A66. Through the restoration of this site there will be some potential to use landform replication techniques including restoration blasting to leave exposed faces closer in character to natural crags and develop a range of other attractive features such as buttresses and scree slopes, limestone pavement and other bare ground habitat, native woodland, calcareous grassland and ground-water fed wetland.
How will the Policy be monitored?
Indicator:
1. Extent of permitted reserves at Hulands Quarry Quarry(tonnes)
Target:
1. No Target
Question 65
This is our preferred policy. Do you have any comments?
201 Aggregate Industries have advised the Council that the proposed extension area to the east of Hulands Quarry contains 7.2 million tonnes of limestone and that the quarry could produce up to 300,000 tonnes of carboniferous limestone per annum.
244 County Durham Plan Preferred Options County Durham Plan Preferred Options
Policy 59 - Strategic Area of Search to the South of Todhills Brickworks
Policy 59
Strategic Area of Search to the South of Todhills Brickworks
In order to ensure that sufficient feedstock is available to provide and maintain a minimum 25 year stock of permitted reserves for Todhills brickworks, a strategic area of search, as shown on the policies map, is identified to the south of the brickworks. Proposals for the winning and working of brick making raw materials from within the area of search will be permitted subject to appropriate planning conditions/planning obligations and where they are in accordance with Policy 52 (Brick Making Raw Materials) and where:
a. They are accompanied by an acceptable scheme of phased working and a high quality restoration scheme which specifically:
1. Includes such advance preparatory works including perimeter mounding/bunding and planting that are deemed necessary to safeguard the local landscape, environment and amenities of the local area; and
2. Delivers a range of environmental benefits including landscape enhancement and habitat creation measures; and
b. It can be demonstrated that there will be no unacceptable adverse impacts on either the environment or the amenity of local communities.
5.566 In order to assist in the delivery of Policy 52 (Brick Making Raw Materials), the Plan is allocating a strategic area of search, south of Todhills Brickworks(202).This allocation will play a vital role in providing the long term feedstock for the adjacent brickworks once existing supplies of coal measures mudstone from the current planning permission (Long Lane) are exhausted(203).
5.567 The area of search will:
Provide the necessary 25 year stock of permitted reserves for Todhills Brickworks;
Provide security of supply for the owner of the brickworks and a basis for future investment, thereby helping to guarantee its economic future;
Assist in the production of bricks and other clay based products for use in County Durham and the North East region; and
Safeguard existing employment at the brickworks.
202 The County Durham Minerals Local Plan (December 2000) recognised the potential shortfall of permitted reserves at this brick manufacturing plant, in the period beyond 2006, and allocated an Area of Search for additional brick shale extraction south east of the existing brickworks to meet longer term needs (Policy M11). This policy has been ‘saved’ until it is replaced by the provisions of the Plan. 203 The current quarry which serves Todhills brickworks (the Long Lane site) was granted in 1999 and has permission for extraction until 27th April 2018.
County Durham Plan Preferred Options 245 County Durham Plan Preferred Options
5.568 Any proposal for future working must ensure that impacts on the character of the landscape and on surrounding communities are minimised, and this is likely to be best achieved through a co-ordinated programme of screening, phased working and restoration which in addition to restoration to agriculture, nevertheless provides environmental benefits via landscape enhancement and habitat creation measures which provide a net gain to biodiversity.
How will the Policy be monitored?
Indicator:
1. Number of years of approved reserves at Todhills Brickworks
Target:
1. To maintain a minimum 25 year stock of permitted reserves at Todhills Brickworks
Question 66
This is our preferred policy. Do you have any comments?
Providing for Waste Management Capacity
Policy 60 - Waste Management Provision
Policy 60
Waste Management Provision
Proposals for the provision of new or enhanced waste management capacity will be permitted where they:
a. Can demonstrate that they contribute to driving the management of waste up the waste hierarchy and do not prejudice the movement of waste up the waste hierarchy; and
b. Can demonstrate that they assist in moving the management of waste in County Durham towards net self-sufficiency and/or make an appropriate contribution to regional net self-sufficiency by managing waste streams as near as possible to their production.
c. Assist in meeting the identified need, set out within this Plan, for new waste management capacity to manage specific waste streams over the Plan period; or
246 County Durham Plan Preferred Options County Durham Plan Preferred Options
d. Can demonstrate an additional need for new waste management capacity to manage specific waste streams over and above that set out within this Plan and which cannot be met by existing operational facilities within County Durham or the North East; and
e. For all proposals can be proven not to cause unacceptable adverse impacts on either the environment or the amenity of local communities and where possible will enhance them.
5.569 In summer 2016, as part of the Issues and Options consultation a ‘call for sites’ was undertaken in respect of waste sites. No submissions were received, therefore no strategic allocations are made within the Plan (204). This policy however, sets out criteria to assess proposals for new capacity to manage forecast waste arisings over the Plan period in line with the Waste Hierarchy. It is based upon an understanding of the capacity of existing waste management facilities, the scale of existing waste arisings, forecast future waste arisings over the Plan period and established recycling targets. The policy approach also has regard to the principle of self-sufficiency at a regional scale and the proximity principle, but does however recognise that waste management is market led and waste flows do naturally occur across local authority boundaries through established management routes and this will continue to occur throughout the Plan period.
The Waste Hierarchy
Moving the way waste is managed up the waste hierarchy is a key objective of Government policy. The waste hierarchy places a priority on the prevention of waste, followed by reuse then recycling, then other recovery (which can include energy from waste). As part of this hierarchy, waste disposal is the last resort. While the Plan is limited in what it can do to minimise the generation of waste the policy seeks to both maximise the management of waste up towards the highest practical levels of the waste hierarchy and ensure that proposals do not prejudice the movement of waste up the waste hierarchy by imposing a degree of restraint on other forms of development, such as landfill and incineration without energy recovery (which, as disposal options, represent the lowest level of the hierarchy), unless a need is demonstrated. Applicants will be expected to demonstrate how their proposed facility accords with this approach.
Net Self-Sufficiency and the Proximity Principle
5.570 Government policy is clear that while there is a policy aim that waste planning authorities should manage all of their own waste in line with the established waste planning principles of self-sufficiency and the proximity principle that there is no expectation that each local planning authority will be able to do so. In this regard, County Durham plays an important part in the management of waste in the North East and established flows of waste exist between County Durham and adjoining areas and other areas in the country. This is likely to continue as waste flows are driven by the market.
5.571 Provision for future waste management in County Durham is based upon providing facilities to deal with the county's own waste arisings whilst acknowledging those flows which already exist (net self-sufficiency). The County Durham Municipal Waste contract currently involves management routes outside the county. The strategy for residual Local Authority Collected Waste (LACW) therefore makes use of spare capacity within the region which will allow management of waste close to source and is more sustainable than providing strategic scale facilities unnecessarily within the county. It may be necessary to provide further capacity for LACW towards the end of the Plan period depending upon contracts and levels of recycling and recovery.
204 Through the preparation of the Minerals and Waste Policies and Allocations Document a further call for sites will be undertaken and we will be able to consider the scope for further non-strategic allocations for new waste management sites.
County Durham Plan Preferred Options 247 County Durham Plan Preferred Options
5.572 The policy should be read alongside the Location of New Waste Management Facilities and Amenity and Pollution policies as these confirm further detail and mitigation for waste management proposals.
Existing Waste Arisings and Current Waste Management Capacity
5.573 Table below sets out current estimates of waste arisings by stream in County Durham. Waste arisings have been grouped into categories which relate to the way they are managed.
5.574 Non-hazardous waste includes Local Authority Collected Waste and Commercial and Industrial Waste. Agricultural Waste mainly comprises organic material and is typically managed on site. A small proportion of Agricultural Waste consists of plastics and metals which would be managed through Commercial and Industrial Waste Streams. Given that this is the component that gives rise to management facilities, any capacity requirements are addressed through Commercial and Industrial Waste Streams.
5.575 Construction, Demolition and Excavation Waste includes rubble, glass, wood, soils and plastics. Most Construction and Demolition waste is classed as ‘inert’ waste in that it will not decompose.
5.576 Hazardous waste is any waste which contains materials or substances potentially harmful to health or the environment, including oils, asbestos, batteries and fluorescent lighting.
5.577 Low Level Radioactive Waste also occurs within small quantities within County Durham. Depending on the nature of this waste and its radioactive content, it can be suitable for disposal in a conventional non inert landfill or at a specialist repository.
Table 10 County Durham Main Waste Streams
Arisings in thousand tonnes and from 2016 unless otherwise Source stated
Non-Hazardous Waste Total: 644.2 Waste Data Flow, Regional C&I of which Dry Recyclate: 246,9 survey
Organic waste: 62,7
Residual waste: 334.6
Inert/Construction, 623.3 (943.6 including imports) Environment Agency Permit Returns Demolition and Excavation Waste (CDEW)
Hazardous Waste 43,7 Environment Agency Permit Returns
Agricultural Waste 3.0 Environment Agency Permit Returns
Low Level Radioactive 942 GBq(205) Environment Agency IPPC Returns Waste
Waste Water 50 Northumbrian Water
205 In waste water; no release in 2016 in solid waste
248 County Durham Plan Preferred Options County Durham Plan Preferred Options
5.578 Alongside these estimates of waste arisings, information published by the Environment Agency (EA) suggests that a total of around 1.53 million tonnes of waste was deposited at EA permitted waste management facilities in County Durham in 2016. There are also a range of import and export movements across the county boundary, mainly to and from Tyne and Wear and the Tees Valley.
5.579 The table below sets out current available capacity by site type in County Durham to manage waste arisings.
Table 11 Current Available Capacity by Site Type
Facility Type Available Capacity Data Source(1) (thousand tonnes per annum)
Mixed Materials Recovery Facility 270 Environment Agency
Composting 190 Environment Agency
Non-Hazardous Transfer 1,190.6(206) Environment Agency
Anaerobic Digestion 72.4 Environment Agency
Clinical Waste Transfer 30 Environment Agency
Hazardous Waste Transfer 30(207) Environment Agency
Inert Waste Transfer 98.6 Environment Agency
Non hazardous residual waste Environment Agency 12.7 treatment/disposal
Inert Landfill Environment Agency 11,104,913 m3 Non Hazardous Landfill and Non Hazardous (with SNRHW cell) Landfill
1. Source: LRS/Anthesis based upon Waste Data Interrogator ‘Active Sites listing’ 2016. At the time of writing the Anthesis report this was the latest data available. Further capacity has been consented since the report was finalised.
Meeting Future Waste Management Capacity Needs
5.580 An assessment of future waste capacity needs has been undertaken over the Plan period. Subject to other considerations, the Plan will seek to permit development in line with future needs. Needs have been identified in line with waste stream and are set out in the table below. As part of developing future capacity needs, consideration has been given to different future scenarios which would impact upon waste arisings and management. This includes, recycling and recovery statutory targets, landfill diversion targets and trends in waste management.
5.581 To note, arisings of Low Level Radioactive Waste in the region are likely to be relatively low so projected growth is omitted from the table below. In relation to this waste type, there are also no nuclear installations in the county and there is sufficient commercial capacity in other areas to manage
206 This Figure Includes HWRC/CA Sites from EA WDI ‘Active Sites’ listings. 207 Excluding wrongly classified Annfield Plain Transfer Station.
County Durham Plan Preferred Options 249 County Durham Plan Preferred Options
waste generated in County Durham and the north east to at least 2029 (208). This will be subject to monitoring over the plan period in discussion with neighbouring authorities as part of the duty to cooperate.
Table 12 Future Projected Growth in Arisings by Waste Stream
Waste Type Quantity (Tonnes)
2016 2025 2035
Non Hazardous waste - recyclate 246,924 265,238 267,099
Construction and Demolition (Inert) 1,066,097 1,066,097 1,066,097
Hazardous waste 43,760 43,672 43,042
5.582 Future forecast arisings per waste type can be considered against forecast capacity to provide an understanding of capacity surplus. A negative figure indicates a capacity shortfall, which is also known as a capacity gap. The table below shows the expected gaps by facilities type in 2035.
Table 13 Available Capacity (Including Any Capacity Gap) by Site Type (to 2035)
Facility Type Available Capacity (tonnes per annum)
Mixed Materials Recovery Facility 118.8
Organic Recycling Capacity 162.2
Non-Hazardous Transfer 817.3
Anaerobic Digestion 122.6
Clinical Waste Transfer 28.6
Hazardous Waste Transfer -11.2
Inert Waste Transfer 78.9
Inert Landfill and Non Hazardous Landfill -3,682 (m3 x 1,000)
Vehicle Depollution Facility 136.0
5.583 The table notes that there is therefore no significant need to identify new waste management sites in the plan area. In respect of hazardous waste transfer the forecasting has evidenced that there would be a capacity gap at the end of the plan period, however, in the context of understanding how future waste is managed within County Durham, as previously noted the council has a contract to export its Local Authority Collected Waste to the Suez energy from waste plant in the Tees Valley. This contract currently runs until 2025. If a shortfall in capacity exists towards the end of the Plan period, proposals for the management of either all or some of this LACW at a site within County Durham, in accordance with the higher levels of the Waste Hierarchy will be looked upon favourably where the proposal is acceptable in all other respects.
208 New Waste Management Capacity Permitted in the North East since the Urban Mines Baseline, 2016
250 County Durham Plan Preferred Options County Durham Plan Preferred Options
5.584 In respect of inert wastes,the modelling has suggested that based on current landfill capacity and the closure of sites, due to current consents expiring during the Plan period, capacity would be exhausted by 2032 (as reflected as a capacity gap the table above). It is however, recognised that increased recovery rates would extend the life of the county's landfills considerably and on this basis, it is considered reasonable to monitor the capacity of the county's landfill sites and particularly post 2032.
How will the Policy be monitored?
Indicator:
1. Appeals upheld contrary to this policy
Target:
1. None upheld at appeal
Question 67
This is our preferred policy. Do you have any comments?
Policy 61 - Location of New Waste Facilities
Policy 61
Location of New Waste Facilities
Proposals for new or enhanced waste management facilities will be permitted where they will assist the efficient collection, recycling and recovery of waste materials and they:
a. Are located outside and do not adversely impact upon the setting or integrity of internationally, nationally and locally designated sites and areas; and
b. Are located outside the Green Belt and are in locations which do not impact upon its openness; and
c. Can be satisfactorily located as part of an existing waste management facility, or where the waste management facility can be satisfactorily co-located with complimentary activities and potential users of recovered materials, recyclates and soils, energy and heat, where appropriate and feasible and where this represents a sustainable option; or
d. Can be satisfactorily located on suitable land identified for employment use, or on suitable previously developed land in the larger towns and villages where the site can serve a local or larger catchment except where:
County Durham Plan Preferred Options 251 County Durham Plan Preferred Options
1. They are located on a strategic or specific use employment site. Such sites are generally not considered to be appropriate for new waste management facilities unless it can be demonstrated that the proposal will not cause unacceptable adverse impact on the strategic or specific use employment site’s principal use;
2. They are small scale waste management facilities that genuinely require a rural or outdoor location and that do not locationally conflict with the provisions of criterion (a) or (b) and other relevant policies in the Plan. In such circumstances proposals will be permitted where they can be satisfactorily located either:
i. Within either existing redundant rural agricultural or forestry buildings and their curtilages as part of farm diversification activities;
ii. Involve small scale new build adjacent to existing farm buildings or extensions to existing farm buildings as part of farm diversification proposals; or
iii. They use existing areas of hardstanding for outdoor compositing operations.
e. All proposals for farm based waste management facilities will be required to demonstrate that the management of waste is ancillary and appropriate in scale to the existing primary use of the site and that the waste to be managed arises either on site or within the local area.
f. Minimise the effects of transporting waste including by locating as close to arisings as practical.
5.585 The Plan seeks to ensure that suitable provision is made to manage anticipated future waste arising in County Durham whilst ensuring that the environment and the amenity of local communities in County Durham is protected and enhanced and that the health of local communities is not endangered. Through its locational approach to accommodating new or extended waste management facilities it seeks to guide the majority of new or extended facilities to suitable locations, where they can be satisfactorily located, so that adverse environmental impacts are minimised and to areas which are the most sustainable and well related to where the majority of waste is produced. In responding to the pressures in the county and in particular the need to reduce reliance on landfill and in the absence of strategic allocations within this Local Plan, the locational approach also sets the basis for where any new non-strategic allocations for waste management facilities could be located in the Minerals and Waste Policies and Allocations document. The locational approach is also forward looking and should support future developments in waste management within County Durham and emerging solutions in other strategic documents such as the Council's Municipal Waste Management Strategy over the Plan period.
5.586 In order to minimise adverse environmental impacts the locational approach seeks to guide new waste management facilities to locations which lie outside of County Durham’s network of internationally, nationally and locally designated sites(209)and to areas which will not have an adverse or unacceptable adverse impact upon them in accordance with the provisions of the relevant policies of the Plan. The locational approach also seeks to guide new waste management facilities to areas
209 This includes areas designated for cultural heritage; landscape; geodiversity and biodiversity. It would therefore include for example the Area of Outstanding Natural Beauty (AONB); World Heritage Site; Sites of Special Scientific Interest (SSSIs) and Ramsar sites as well as the Biosphere Reserve.
252 County Durham Plan Preferred Options County Durham Plan Preferred Options
outside and which do not impact on the openness of the Green Belt in County Durham. Green Belts have special protection in respect to development and it is considered that there is scope to accommodate waste management facilities outside the Green Belt in County Durham. Designated sites and areas and the extent of the defined Green Belt in County Durham are shown on the policies map with protection being afforded to these areas through relevant policies elsewhere in the Plan.
5.587 The locational approach seeks to guide the majority of new waste developments to where they can be satisfactorily located either as part of an existing waste site or an integrated waste management facility, or where the waste management facility can be satisfactorily co-located with potential users of recovered materials, recyclates and soils, energy and heat. The locational approach also recognises that land identified for general industrial or employment use or previously developed land in the larger towns and villages where the site can serve a local or larger catchment is the most suitable subject to the facilities being able to be satisfactorily located. Guiding the majority of new waste management facilities to such suitable locations and sites is considered the most sustainable approach and bearing in mind that it is these locations within the county where the majority of waste arises, is also in line with the proximity principle and will help minimise vehicular emissions associated with transporting waste by road.
5.588 In the past the development of waste management facilities has been traditionally dogged by poor image and negative perceptions. In accordance with the council’s established approach, through the Plan we will seek to ensure that new waste management facilities when located on land identified for general industrial or employment use will not adversely affect those locations’ suitability for other employment development. This is considered important because the development of a network of high quality and attractive employment locations has both been a priority and success of the council.
5.589 Through accommodating the majority of waste management operations within contemporary and well-designed buildings or enclosed structures appropriate to the technology or process, it is considered that most environmental impacts associated with the management of waste can be satisfactorily mitigated. It is however considered that there are some sites where waste management facilities would not be appropriate, due to the nature of the site and the uses that the site contains or is proposed to contain. Specifically this relates to the Aykley Heads strategic employment site in Durham City, which is allocated in the Plan for significant new office development, and the specific use employment site at NetPark. Other than these sites and based on evidence in the council’s Employment Land Review we have taken the view (with the exception of the above sites which have a specific role and purpose) that it is not possible to identify areas unsuitable for waste development on a site by site basis.
5.590 Other exceptions to this approach include where it can be clearly demonstrated that any unacceptable adverse environmental impacts associated with waste management can be mitigated by alternative means, or where a waste management process genuinely requires an outdoor location for example landfill, landraise or outdoor composting and where a waste management operation can be suitably located within a rural area as part of a genuine farm diversification proposal. As a general principle, the Plan seeks to prevent development that would have an unacceptable adverse impact on the countryside. However, this policy recognises that there may be specific circumstances where new small scale waste management facilities may be appropriate within rural areas in specific limited circumstances where the proposed development can be satisfactorily located.
5.591 In considering all proposals for new or extended waste management facilities the council will consider the compatibility of the proposal with the locational approach outlined in this policy and whether the proposal can also be satisfactorily located taking into account the physical and environmental constraints on and surrounding the site, the compatibility of the proposed development
County Durham Plan Preferred Options 253 County Durham Plan Preferred Options
with existing and proposed neighbouring land uses, the proximity of sensitive receptors and the capacity and suitability of existing and potential transport infrastructure to support the sustainable movement of waste and products arising from resource recovery.
5.592 This policy applies to the majority of waste management facilities with the exception of sewage and waste water infrastructure, landfill and landraise developments and aggregate recycling facilities which are addressed by other development plan policies.
How will the Policy be monitored?
Indicator:
1. Appeals upheld contrary to this policy
Target:
1. None upheld at appeal
Question 68
This is our preferred policy. Do you have any comments?
A Strategic Policies
A.1 The National Planning Policy Framework (NPPF) states that local plans should make explicit which policies are ‘strategic policies’. These should be limited to those necessary to address the strategic priorities of the area (and any relevant cross-boundary issues), to provide a clear starting point for any local policies that may be needed. Those local policies may come forward either as part of a single local plan or as part of a subsequent local plan or neighbourhood plan. Durham County Council consider the following policies in this Plan to be Strategic:
Policy 1 - General Development Principles Policy 2 - Quantity of Development Policy 3 - Employment Land Policy 4 - Aykley Heads Policy 5 - Housing Allocations Policy 6 - Durham City's Sustainable Urban Extensions Policy 7 - Development on Unallocated Sites in the Built Up Area Policy 10 - Retail Hierarchy and Town Centre Development Policy 11 - Development in the Countryside Policy 12 - Rural Housing and Employment Exception Sites Policy 13 - Permanent Rural Workers’ Dwellings Policy 16 - Addressing Housing Need Policy 17 - Durham University Development, Purpose Built Student Accommodation and Houses in Multiple Occupation Policy 18 - Sites for Travellers
254 County Durham Plan Preferred Options County Durham Plan Preferred Options
Policy 21 - Green Belt Policy 22 - Non-Strategic Green Belt Amendments Policy 24 - Durham City Sustainable Transport Policy 25 - Allocating and Safeguarding Transport Routes and Facilities Policy 27 - Developer Contributions Policy 28 - Green Infrastructure Policy 29 - Utilities, Telecommunications and Other Broadcast Infrastructure Policy 31 - Sustainable Design in the Built Environment Policy 36 - Wind Turbine Development Policy 37 - Water Management Policy 38 - Water Infrastructure Policy 39 - Durham Coast and Heritage Coast Policy 40 - North Pennines Area of Outstanding Natural Beauty Policy 41 - Landscape Character Policy 43 - Biodiversity and Geodiversity Policy 44 - Internationally Designated Sites Policy 45 - Protected Species and Nationally and Locally Protected Sites Policy 46 - Historic Environment Policy 47 - Durham Cathedral and Castle World Heritage Site Policy 48 - Stockton and Darlington Railway Policy 49 - Sustainable Minerals and Waste Resource Management Policy 51 - Meeting the Need for Primary Aggregates Policy 53 - Surface Mined Coal and Fireclay Policy 54 - Natural Building and Roofing Stone Policy 56 - Safeguarding Mineral Resources Policy 58 - Preferred Area for Future Carboniferous Limestone Working Policy 59 - Strategic Area of Search to the South of Todhills Brickworks Policy 60 - Waste Management Provision
B Coal Mining Risk Assessments and Mineral Assessments
Coal Mining Risk Assessment (CMRA)
Policy drivers
Addressing unstable land is required by the National Planning Policy Framework and Policy 34 (Despoiled, Degraded, Derelict, Contaminated and Unstable Land) of the Plan.
Types of Application that require this information
All planning applications unless exempt(210)which fall within the Coal Mining High Risk Area as defined by the Coal Authority. The council has been provided with maps identifying the extent of High Risk Areas and Low Risk Areas (please refer to the Plan policies map).
210 Exempt development includes householder developments, heritage consents (Listed Buildings and Conservation Areas), Advertisement Consent, Lawful Development Certificates, Prior Notification (any type), hazardous substances consent, trees or hedgerow works. This list is not exhaustive, the Council will be able to advise you on whether a Coal Mining Risk Assessment is required.
County Durham Plan Preferred Options 255 County Durham Plan Preferred Options
Scope of the Coal Mining Risk Assessment
The Coal Mining Risk Assessment should be prepared by a suitably qualified and competent person. The report should:
Present a desk-based review of all available information on the coal mining issues which are relevant to the application site. For example, site specific coal mining information (including past/present/future underground mining, shallow coal workings, mine entries (shafts or adits), mine gas, whether it is within an area which has a current licence to extract coal, geological features, any recorded surface hazards, or whether it is within a former or present surface mining [old opencast] area).
Use that information to identify and assess what risks these coal mining issues, including cumulative effects, pose to the proposed development.
Set out appropriate mitigation measures to address the coal mining legacy issues affecting the site, including any necessary remedial work and/or demonstrate how coal mining issues have influenced the proposed development; and
Demonstrate to the Local Planning Authority that the application site is, or can be made, safe and stable to meet the requirements of national and local policy with regard to development on unstable land.
Any development that involves intrusive activities which intersect, disturb or enter any coal seams, coal mine workings or mine entries will require the prior written permission of The Coal Authority. Note - if an Environmental Statement is required by the Town and Country Planning (Environmental Impact Assessment) (England and Wales) Regulations 1999 as amended, it is suggested that the Coal Mining High Risk Areas is included as a subject within the Environmental Statement.
Developers are advised that an up-to-date Coal Mining Report or Ground Stability Report can be ordered on the www.groundstability.com website provides the coal mining information required to inform a Coal Mining Risk Assessment.
Where to look for further assistance
The National Planning Policy Framework (NPPF) can be found on the MHCLG website: www.direct.gov.uk
Organisations that can assist:
For information on coal unstable land and derived from the legacy of coal mining:
The Coal Authority Planning and Local Authority Liaison Department 200 Lichfield Lane Berry Hill Mansfield Nottinghamshire NG18 4RG.
Telephone: 01623 637 119 Website: www.coal.gov.uk/services/planning Email: [email protected]
256 County Durham Plan Preferred Options County Durham Plan Preferred Options
For further information on contaminated land in County Durham :
Land Quality Inspection Programme Durham County Council Environment, Health and Consumer Protection Annand House John Street North Meadowfield County Durham DH7 8RS
Telephone: (03000) 261 152
Email: [email protected]
B.1 Mineral Assessments
Policy Drivers
The safeguarding of mineral resources and prevention of unnecessary sterilisation of minerals is required by the NPPF and Policy 56 (Safeguarding Mineral Resources) of the Plan.
Types of application that require this information
All planning applications which occur within a Mineral Safeguarding Area as shown on the policies map should be accompanied by a mineral assessment, except the following:
1. Infilling in an otherwise built up frontage within a settlement;
2. Householder planning applications within the curtilage of a property;
3. Alterations and extensions to existing buildings including applications for new or improved accesses;
4. Change of use of existing buildings;
5. 'Minor' works such as gates, walls and fences;
6. Agricultural buildings adjacent to existing farmsteads;
7. Advertisement consent;
8. Reserved matters applications following the grant of outline planning permission;
9. Listed Buildings Consent and Conservation Area Consent;
10. Applications to remove or amend a condition attached to an existing planning permission;
11. Prior notifications for telecommunications development, forestry and demolition;
12. Works to trees or removal of hedgerows;
13. Outside storage;
County Durham Plan Preferred Options 257 County Durham Plan Preferred Options
14. Open space (although not outdoor recreation facilities such as golf courses) and allotments;
15. Certificates of Lawfulness of Existing Use of Development (CLEUD); and
16. Certificates of Lawfulness of Proposed Use or Development (CLOPUD).
What information is required
Information should be relevant, necessary and material to the application in question.
All applicants are encouraged to undertake pre-application discussions on any planning application. The requirement for a Mineral Assessment will be considered in this process. Following pre-application discussions, the council will decide what level of Mineral Assessment is required, if any. The council will also take into consideration the sterilisation potential of the development proposed and the mineral resource being considered.
The two levels of Mineral Assessment are:
1. A site-specific desk based assessment of the existing surface and solid geological and mineral resource information. This will comprise information on the mining and quarrying history, mineral assessments and market appraisals, boreholes, site investigations, geological memoirs, technical reports, mining plans and thickness of superficial geological deposits.
2. Analysis of the site-specific information derived from level 1 including:
a. An estimate of the economic value (for example quantity and quality) of the mineral resource;
b. Its potential for use in the forthcoming development and an assessment of whether it is feasible and possible to extract the mineral resource ahead of the development to prevent unnecessary sterilisation;
c. Where prior extraction can be undertaken, an explanation of how this will be carried out as part of the overall development scheme.
Level 2 should be prepared by a suitably qualified and competent person. Should an applicant believe that some or all of the information is not necessary, advice should be sought from the Council.
Where to look for further assistance
The National Planning Policy Framework can be found on the MHCLG website: www.direct.gov.uk
Organisations that can assist
For information on mineral resources and mineral resource datasets:
British Geological Survey Keyworth Nottingham NG12 5GG
258 County Durham Plan Preferred Options County Durham Plan Preferred Options
Tel: +44(0115) 936 3143 Fax: +44(0)115 936 3276 Email: [email protected]
For information on coal resources and coal datasets:
The Coal Authority Planning and Local Authority Liaison Department 200 Lichfield Lane Berry Hill Mansfield Nottinghamshire NG18 4RG.
Telephone: 01623 637 119 Website: https://www2.groundstability.com/ Email: [email protected]
C Safeguarding Mineral Resources and Safeguarded Minerals and Waste Sites
C.1 This appendix supports Policy 56 (Safeguarding Mineral Resources) and Policy 50 (Safeguarding Minerals Related Infrastructure and Waste Management Sites). It provides information on our approach to safeguarding individual minerals and identifies which mineral transportation facilities, mineral processing and secondary aggregate recycling facilities and waste sites are to be safeguarded. In addition this appendix also provides information on what development will be viewed as exempt development which would not be viewed as sterilising development within a Mineral Safeguarding Area (Policy 50) or be viewed as inappropriate development within a Minerals and Waste Safeguarding Zone (Policy 50).
Table 14 Approach to Mineral Safeguarding
Mineral Approach taken
Magnesian Limestone We have safeguarded the outcrop of lower magnesian limestone (the raisby formation) whilst buffering (including proved areas of the eastern edge of the lower magnesian limestone outcrop to take into account the likelihood of high grade dolomite) quarries working down into the lower magnesian limestone resource. Magnesian limestone underlying urban areas will not be safeguarded. In order to protect mineral resources of recognised national importance the we have also safeguarded two proved areas of high grade dolomite. Within County Durham, there are two of five known areas of high grade dolomite in the United Kingdom. These areas comprise: (1) Thrislington Quarry East of the A1(M) together with land to the east of Thrislington Quarry East of the A1(M) which was specifically protected by the Minerals Local Plan as "high grade dolomite reserve"; and (2) Hawthorn Quarry where approximately 9 million tonnes of high purity magnesian limestone (ford formation) is permitted. Available evidence also suggests that high grade dolomite from the Ford formation lies to the north and west of Hawthorn Quarry for an unknown distance.
Carboniferous Limestone We have safeguarded the entire carboniferous limestone resource.
Dolerite We have safeguarded the entire dolerite resource.
Sand and gravel We have safeguarded the entirety of the fluvial and glacial sand and gravel resource. In addition we have also safeguarded blown sand and raised beach deposits.
Basal permian sand We have safeguarded the outcrop of basal permian sand and known areas where it lies at accessible depths.
Silica sand We have safeguarded the entire outcrop of silica sand.
County Durham Plan Preferred Options 259 County Durham Plan Preferred Options
Mineral Approach taken
Brick clay and shale We have safeguarded existing permissions and the proposed area of search south of Todhills brickworks. Further potential areas containing brick clay and shale would be safeguarded through our approach to safeguarding the coal resource area.
Surface mined coal We have safeguarded the entirety of the Coal Resource Area (identified by the Coal Authority on their Coal Resource Plan).
Natural building and roofing Information on the distribution of building stone resources is less detailed than for other forms of stone surface minerals. Geological deposits with potential to contain building stone resources are potentially very extensive across the area, although in practice it is likely that only very small parts of these will contain stone with the right technical and aesthetic properties to constitute viable sources of supply of building stone. The Council will safeguard all existing and dormant natural building and roofing stone quarries in County Durham. In addition the Council will safeguard all relic sandstone and slate quarries in County Durham identified by English Heritage through their Strategic Stone Study. The following existing natural building and roofing stone sites will be safeguarded: Dunhouse Quarry; Stainton Quarry; Shipley Banks Quarry; Windy Hill Quarry; Cat Castle Quarry; and Lingberry Quarry.
Fluorspar We have safeguarded all known fluorspar veins.
Barytes We have safeguarded all known barytes veins.
Table 15 Safeguarded Waste Management Sites
Site Operator Type
Bunker Hill Farm Leadgate R W Steele Composting
Conservation Centre, Deepdale, Barnard Castle Teesdale Conservation Centre Composting
Joint Stocks, Coxhoe Durham County Council Composting
Junction House Farm, Loaning Burn, Easington P Hutchinson Composting
Murton Hall Farm, Trimdon Andrew Thompson Composting
Todhills Farm, Newfield Alan Etherington (AET Ltd) Composting
Aycliffe Quarry, Aycliffe Village Stonegrave Aggregates Ltd Composting
Emerald Biogas, Land at Preston Rd, Aycliffe Industrial Estate Emerald Biogas Composting (Anaerobic Digesters)
Jobs Lodge Farm, Woodland, Bishop Auckland EVT Contractors Composting
Land to the south of Hope House Farm, Elstob Lane, Mordon Mr S Barker Composting (Anaerobic Digesters)
High Hedley Hope Farm, Bishop Auckland Mr W J Drennan Composting (Anaerobic Digesters)
Heighington HWRC, Newton Aycliffe H.W.Martin Household Waste Recycling Centre
Horden HWRC, Peterlee H.W.Martin Household Waste Recycling Centre
Middleton-in-Teesdale HWRC, Highways Depot off B6277, Middleton-in-Teesdale H.W.Martin Household Waste Recycling Centre
Romanway HWRC, Bishop Auckland H.W.Martin Household Waste Recycling Centre
Seaham Strangford Road HWRC H.W.Martin Household Waste Recycling Centre
Tudhoe, Spennymoor HWRC H.W.Martin Household Waste Recycling Centre
Coxhoe HWRC H.W.Martin Household Waste Recycling Centre
260 County Durham Plan Preferred Options County Durham Plan Preferred Options
Site Operator Type
Hett Hills HWRC, Chester-le-Street H.W.Martin Household Waste Recycling Centre
Thornley HWRC, Shotton Colliery H.W.Martin Household Waste Recycling Centre
Annfield Plain HWRC H.W.Martin Household Waste Recycling Centre
Stainton Grove HWRC, Barnard Castle H.W.Martin Household Waste Recycling Centre
Bishop Middleham Quarry, DL17 9EB W & M Thompson (Quarries) Ltd Landfill
Crime Rigg, Shadforth Breedon Landfill
Joint Stocks, Coxhoe Durham County Council Landfill
Aycliffe Quarry East Stonegrave Aggregates Ltd Landfill
Old Quarrington Quarry, Bowburn Tarmac Landfill
Block A, Merrington Lane Ind Estate Foreman Recycling Ltd Recycling
Joint Stocks, Coxhoe Durham County Council Recycling
Old Quarrington Quarry, DH6 5NN Tarmac Recycling
Thrislington Quarry West Tarmac Recycling
Thornley Transfer Station,Unit U, Thornley Industrial O'Brien Waste Recycling Solutions Estate Ltd Recycling
Heights Quarry, Eastgate, Durham Aggregate Industries Recycling
Hulands Quarry, nr Bowes Aggregate Industries Recycling
Unit 15, Hackworth Industrial Estate, Shildon PTS Recycling
Thornley Transfer Station, Thornley Station Ind Est, Salters Lane, Shotton Colliery Durham County Council Transfer
Heighington Lane Transfer Station Durham County Council Transfer
Annfield Plain Transfer Station Durham County Council Transfer
Stainton Grove Transfer Station Durham County Council Transfer
Chilton Depot, Chilton Industrial Estate Durham County Council Transfer
Garmondsway Depot Veolia Ltd / Cleanaway Ltd Transfer
Site S, Thornley Industrial Estate, Shotton Burn & Hewitt Contractors Transfer
Old Brickworks, Tanfield, DH9 9UY Colton Ltd Transfer
Aycliffe Quarry, Newton Aycliffe Stonegrave Aggregates Ltd Transfer
Personnel Hygiene Services Ltd,1 Bracken Hill, Peterlee Personnel Hygiene Services Ltd Transfer
Harmire Road, Barnard Castle Glaxo Smithkline Transfer
Sharpsmart, Enterprise City, Spennymoor Daniels Corporation International Ltd Transfer
Thistle Road, Langley Moor Ward Brothers Transfer
JBT, Westline Industrial Estate, Birtley John Binks Transport Transfer
County Durham Plan Preferred Options 261 County Durham Plan Preferred Options
Site Operator Type
Eden Hall, Hamsterley T Warren Transfer
Tursdale Industrial Estate Lumsden & Carroll Transfer
Eco Tyre, Rosebay Road, Littleburn Industrial Estate, Material Recycling Treatment Langley Moor Eco Tyre Disposals Ltd Facility
Table 16 Safeguarded Mineral Sites (Sites with planning permission for mineral working (position at 1 January 2018)).
Site Operator Minerals extracted
Low Harperley, near Wolsingham Breedon Sand & Gravel
Crime Rigg Quarry, Shadforth Breedon Magnesian Limestone and Basal Permian Sand
Running Waters Quarry, Sherburn Breedon Magnesian Limestone
Cornforth West, West Cornforth Tarmac Magnesian Limestone
Cornforth East, West Cornforth Tarmac Magnesian Limestone
Hummerbeck, near West Auckland Hall Construction Sand & Gravel
Birtley Quarry, Birtley Ibstock Brick Ltd Brickclay / Shale
Weather Hill Quarry, near Stanhope Hobson Brothers Moulding Sand
Witch Hill Quarry, Shadforth Breedon Magnesian Limestone
Heights Quarry, Westgate Aggregate Industries Carboniferous Limestone
Old Quarrington and Cold Knuckles Quarry, Tarmac Magnesian Limestone and Basal Bowburn Permian Sand
Coxhoe Quarry, Coxhoe Hope Construction Materials Magnesian Limestone
Harthope Head Quarry, Langdon Fell Mr R Scott Ganister
Bishop Middleham Quarry, Bishop Middleham W & M Thompson (Quarries) Ltd Magnesian Limestone
Force Garth Quarry, High Force, Middleton in Cemex Uk Materials Ltd Whinstone Teesdale
Windy Hill Quarry, Barnard Castle Windy Hill Quarry Construction Co Sandstone
Shipley Banks Quarry, Marwood Shipley Quarries Sandstone
Lingberry Quarry, Staindrop Border Stone Quarries Sandstone
Dunhouse Quarry, Staindrop Dunhouse Quarry Co Sandstone
Stainton Quarry, Stainton Stainton Quarry Ltd Sandstone
Cat Castle Quarry, Lartington Dunhouse Quarry Co Ltd Sandstone
Hulands Quarry, Bowes Aggregate Industries Carboniferous Limestone
Kilmond Wood Quarry, Bowes Kearton Farms Ltd Carboniferous Limestone
Broadwood Quarry, Frosterley Breedon Carboniferous Limestone
262 County Durham Plan Preferred Options County Durham Plan Preferred Options
Site Operator Minerals extracted
Long Lane, Todhills Wienerberger Brickclay
Newlandside Quarry, Staindrop Indigo Pacific Carboniferous Limestone
Thrislington Quarry West, Cornforth Tarrmac Magnesian Limestone and Basal Permian Sand
Thrislington Quarry East, Cornforth Tarmac Magnesian Limestone and High Grade Dolomite
Eldon Quarry, Eldon Eldon Estates Bricklay / Shale
Bradley Surface Mined Coal Permisson Banks Developments Coal
Field House Surface Mined Coal Permission Hargreaves Coal
Table 17 Safeguarded Mineral Sites which would require new schemes of working and restoration conditions prior to working recommencing (position at 1 January 2018).
Site Name and Location. Mineral.
Lunehead, Teesdale Barytes
Bollihope (Jopler Sykes), Frosterley, Wear Valley. Carboniferous Limestone
Bollihope L20, Frosterley, Wear Valley. Carboniferous Limestone
Bollihope L21, Frosterley, Wear Valley. Carboniferous Limestone
Carriers Hill, Killhope, Wear Valley. Carboniferous Limestone
Greenfield, Lanehead, Wear Valley. Carboniferous Limestone
Parson Byers, Stanhope, Wear Valley. Carboniferous Limestone
Puddingthorn. Lanehead, Wear Valley Carboniferous Limestone
Scutterhill, Westgate, Wear Valley Carboniferous Limestone
Side Head, Westgate, Wear Valley Carboniferous Limestone
White Hills, Ireshopeburn, Wear Valley Carboniferous Limestone
Cockfield, Teesdale Dolerite
Crossthwaite, Holwick, Teesdale Dolerite
Greenfoot, Stanhope, Wear Valley Dolerite
Middleton, Holwick, Teesdale Dolerite
Park End, Holwick, Teesdale Dolerite
Stotsfieldburn, Rookhope, Wear Valley. Fluorpsar
Bollihope (Harnisha Burn & Yew Tree), Frosterley, Wear Fluorspar Valley.
Burtree Pasture, Cowshill, Wear Valley. Fluorspar
Sedling Mine, Cowshill, Wear Valley. Fluorspar
Slitt Pasture, Westgate, Wear Valley. Fluorspar
County Durham Plan Preferred Options 263 County Durham Plan Preferred Options
Site Name and Location. Mineral.
West Blackdene, Ireshopeburn, Wear Valley Fluorspar
Castleside, Castleside. Ganister
Cat Crag, Lanehead, Wear Valley. Ganister
Doctors Gate, Wolsingham, Wear Valley/Teesdale. Ganister
Harthope West, St John's Chapel, Wear Valley Ganister
Howden Burn, Frosterley, Wear Valley. Ganister
Lintzgarth, Rookhope, Wear Valley. Ganister
Muggleswick Common, Stanhope, Derwentside. Ganister
Redmires, Wolsingham, Wear Valley. Ganister
Roundhill, Rogerley, Wear Valley. Ganister
Blanket Consent (Upper Weardale & Rookhope), Wear Lead Ore, Zinc Ore & Fluorspar Valley.
Tuthill Quarry, Haswell, Easington Magnesian Limestone
Houselop Beck, Wolsingham, Wear Valley Moulding Sand
Page Bank, Byers Green, Wear Valley Sand & Gravel
Roger Hill, Derwent Bridge Wear Valley Sand & Gravel
Wolsingham, Wear Valley Sand & Gravel
Berry Bank, Edmondbyers ,Wear Valley Sandstone
Viewly Hill, High Stoop Quarry, Wolsingham, Wear Sandstone Valley
Wharnley Burn Farm, Castleside, Derwentside. Sandstone
Harrowbank and Ashby Bank (IDO/3/1) Carboniferous Limestone
Hawthorn (IDO/5/1) Magnesian Limestone
Gypsy Lane (IDO/7/6) Sand and gravel
Land south of Gladstone Terrace, Chilton Quarry Sand and gravel (IDO7/3/1)
Table 18 Relic Quarries to be Safeguarded
Quarry Geology Grid Reference Name Baxton Law Grindstone NY 393620 546700 Quarry Sandstone
Quickburn Lower Coal NZ 408000 542800 Measures Sandstone
Woodburn Lower Coal NZ 408250 543820 Measures Sandstone
264 County Durham Plan Preferred Options County Durham Plan Preferred Options
Quarry Geology Grid Reference Name Butsfield Lower Coal NZ 409655 544495 Quarry Measures Sandstone
Drovers Lower Coal NZ 409437 542973 Roadside Measures Quarry Sandstone
Hermitage Lower Coal NZ 409500 543250 Ganister Measures Sandstone
Salters Gate Lower Coal NZ 406505 543525 Measures Sandstone
Hall Heads Lower Coal NZ 425170 531845 Measures Sandstone
Hall Heads Lower Coal NZ 425085 531865 Measures Sandstone
Quarry Lower Coal NZ 423605 531060 Houses Measures Sandstone
Westerton Lower Coal NZ 423780 531100 Measures Sandstone
Westerton Lower Coal NZ 424000 531205 Measures Sandstone
Westerton Lower Coal NZ 423660 531180 Measures Sandstone
Hown's Lower Coal NZ 409700 548900 Quarry Measures Sandstone
Partridge Lower Coal NZ 413195 544740 Close Measures Sandstone
Low Lower Coal NZ 409522 543196 Hermitage Measures Sandstone
Drover Lower Coal NZ 409375 542545 House Measures Sandstone
Drover Lower Coal NZ 409398 542574 House Measures Sandstone
Adelpi Lower Coal NZ 410311 542566 Plantations Measures Sandstone
County Durham Plan Preferred Options 265 County Durham Plan Preferred Options
Quarry Geology Grid Reference Name Hermitage Lower Coal NZ 410612 542992 Plantation Measures Sandstone
Coalford Lower Coal NZ 411366 543017 Quarry Measures Sandstone
Coalford Lower Coal NZ 411481 543201 Bridge Measures Sandstone
Steeley Burn Lower Coal NZ 411077 542865 Measures Sandstone
Kennel Wood Lower Coal NZ 411027 542260 Measures Sandstone
Lodge Wood Lower Coal NZ 411301 541695 Measures Sandstone
Hutchet Lower Coal NZ 410453 541996 Wood Measures Sandstone
Low Lower Coal NZ 409274 543062 Hermitage Measures Sandstone
Rackwood Lower Coal NZ 409105 529905 Hill Measures Sandstone
Cockfield Fell Lower Coal NZ 412169 524629 Measures Sandstone
Cockfield Fell Lower Coal NZ 412333 524589 Measures Sandstone
Butterknowle Lower Coal NZ 412983 525083 Farm Measures Sandstone
Low Lands Lower Coal NZ 413291 524997 Measures Sandstone
Low Lands Lower Coal NZ 413475 524883 Measures Sandstone
Charley Lower Coal NZ 411914 524342 Pasture Measures Quarry Sandstone
Peathrow Lower Coal NZ 410822 524316 East Measures Sandstone
266 County Durham Plan Preferred Options County Durham Plan Preferred Options
Quarry Geology Grid Reference Name Oaky Bank Lower Coal NZ 409939 524383 Quarry Measures Sandstone
Lower West Lower Coal NZ 411043 524574 Garth Measures Sandstone
Cockfield Fell Lower Coal NZ 412028 525483 Measures Sandstone
Cockfield Fell Lower Coal NZ 412061 525427 Measures Sandstone
Cockfield Fell Lower Coal NZ 412721 525153 Measures Sandstone
Brusselton Lower Coal NZ 419658 525275 Wood Measures Sandstone
Brusselton Lower Coal NZ 420166 525068 Quarry Measures Sandstone
Brusselton Lower Coal NZ 420305 525089 Wood Measures Sandstone
Brusselton Lower Coal NZ 419266 525362 Measures Sandstone
Brusselton Lower Coal NZ 420627 525040 Measures Sandstone
Latterington Lower Coal NZ 418873 524432 Hall Measures Sandstone
North Wood Lower Coal NZ 411459 523718 Measures Sandstone
White Hall Main Post NZ 423311 550979 Sandstone
Blue House Main Post NZ 423432 552847 Sandstone
Rabbit Hills Main Post NZ 423168 553262 Sandstone
Urpeth Middle Coal NZ 423120 553492 Common Measures Sandstone
High Row Middle Coal NZ 424517 552112 Measures Sandstone
County Durham Plan Preferred Options 267 County Durham Plan Preferred Options
Quarry Geology Grid Reference Name Burnthouse Middle Coal NZ 425393 551807 Quarries Measures Sandstone
Congburn Middle Coal NZ 424776 550316 Measures Sandstone
Smithydean Middle Coal NZ 424754 549459 Quarries Measures Sandstone
Smithydean Middle Coal NZ 424550 549563 Quarries Measures Sandstone
Sniperley Middle Coal NZ 425911 544564 Measures Sandstone
Sniperley Middle Coal NZ 425227 544510 Measures Sandstone
Low Brasside Middle Coal NZ 430391 545990 Moor Measures Sandstone
Brasside Middle Coal NZ 430235 546095 Quarry Measures Sandstone
Mallygill Middle Coal NZ 430663 545651 Quarry Measures Sandstone
Woodwell Middle Coal NZ 429860 545041 House Measures Sandstone
Frankland Middle Coal NZ 429474 544956 Wood Measures Sandstone
Frankland Middle Coal NZ 429633 544873 Wood Measures Sandstone
Kepier Wood Middle Coal NZ 429584 544737 Measures Sandstone
Kepier Wood Middle Coal NZ 429411 544193 Measures Sandstone
New Middle Coal NZ 432625 544291 Pittington Measures Sandstone
Kepier Middle Coal NZ 429277 544002 Quarries Measures Sandstone
268 County Durham Plan Preferred Options County Durham Plan Preferred Options
Quarry Geology Grid Reference Name East Brandon Middle Coal NZ 420772 539996 Wood Measures Sandstone
Brandon Hall Middle Coal NZ 423243 539956 Measures Sandstone
Littleburn Middle Coal NZ 425802 539965 Measures Sandstone
Borehole Middle Coal NZ 425905 539956 Wood Measures Sandstone
Rabbit Hill Middle Coal NZ 420842 539158 Plantation Measures Sandstone
Little Burn Middle Coal NZ 425879 538733 Measures Sandstone
Rabbit Hill Middle Coal NZ 420924 539154 Plantation Measures Sandstone
Brandon Middle Coal NZ 424213 539587 Colliery Measures Sandstone
Cascade Middle Coal NZ 425828 538792 Walk Measures Sandstone
Long Hill Middle Coal NZ 420327 540751 Measures Sandstone
Pit Cottage Middle Coal NZ 427346 543091 Measures Sandstone
Crook Hill Middle Coal NZ 427436 543191 Measures Sandstone
Ferryhill Middle Coal NZ 429021 533261 Measures Sandstone
Strawberry Middle Coal NZ 429158 533185 Cottage Measures Sandstone
Grange Hill Middle Coal NZ 423152 528920 Measures Sandstone
Sewell Wood Middle Coal NZ 421991 529800 Measures Sandstone
County Durham Plan Preferred Options 269 County Durham Plan Preferred Options
Quarry Geology Grid Reference Name Shawbrow Middle Coal NZ 422154 527336 Hill Measures Sandstone
Green Hill Slate NY 384791 529570
Berry Bank Stainmore NZ 401290 550670 Formation Sandstone
Catcastle Stainmore NZ 401400 516470 Quarry Formation Sandstone
Dead Friars 2 Stainmore NY 396900 545400 Quarry Formation Sandstone
Dunhouse Stainmore NZ 411350 519300 Quarry Formation Sandstone
Harthope Stainmore NY 386475 533850 Head Formation Sandstone
Shipley Stainmore NZ 401705 520820 Banks Formation Quarry Sandstone
Stainton Stainmore NZ 406955 519030 Quarry Formation Sandstone
Windy Hill Stainmore NZ 402170 521660 Quarry Formation Sandstone
Redgate Stainmore NZ 408235 538140 Formation Sandstone
Wiserley Hill Stainmore NY 402285 537665 Formation Sandstone
Stainton Stainmore NZ 407075 518830 Grange Formation Sandstone
Dead Friars 1 Stainmore NY 397180 545185 Formation Sandstone
Lingberry Stainmore NZ 408525 520550 Quarry Formation Sandstone
Catty Crag Stainmore NY 394918 517018 Formation Sandstone
Yew Scar Stainmore NY 397375 519895 Formation Sandstone
270 County Durham Plan Preferred Options County Durham Plan Preferred Options
Quarry Geology Grid Reference Name West Town Stainmore NZ 406305 517450 Formation Sandstone
Town Head Stainmore NZ 405795 517100 Formation Sandstone
Shipley Stainmore NZ 401560 520925 Banks Formation Sandstone
Baxtongill Stainmore NZ 402530 520790 Formation Sandstone
High Park Stainmore NZ 403450 519820 Wall Formation Sandstone
Clints Stainmore NY 398350 513700 Formation Sandstone
East Stainmore NZ 414552 512701 Middleton Formation Sandstone
Hutton Fields Stainmore NZ 413495 511707 Formation Sandstone
Bail Hill Stainmore NY 396901 522220 Quarries Formation Sandstone
Bail Hill Stainmore NY 397058 522260 Quarries Formation Sandstone
Howe Gill Stainmore NZ 402696 522418 Quarries Formation Sandstone
Howe Gill Stainmore NZ 402565 522389 Quarries Formation Sandstone
Moss Close Stainmore NZ 402493 521791 Formation Sandstone
Shipley Stainmore NZ 402198 520978 Banks Formation Quarries Sandstone
Shipley Stainmore NZ 401481 521165 Banks Formation Quarries Sandstone
Shipley Stainmore NZ 401500 521078 Banks Formation Quarries Sandstone
County Durham Plan Preferred Options 271 County Durham Plan Preferred Options
Quarry Geology Grid Reference Name Belle Vue Stainmore NZ 404484 519358 Formation Sandstone
Knot Hill Stainmore NZ 403794 519225 Formation Sandstone
Knot Hill Stainmore NZ 403740 519269 Formation Sandstone
Knot Hill Stainmore NZ 404199 518884 Formation Sandstone
Towler Hill Stainmore NZ 403760 517656 Formation Sandstone
Bowes Dunn Stainmore NZ 411195 519308 House Formation Quarry Sandstone
Dunn House Stainmore NZ 411133 519256 Quarry Formation Sandstone
Dunn House Stainmore NZ 411153 519170 Quarries Formation Sandstone
West View Stainmore NZ 405295 515794 Formation Sandstone
Cat Castle Stainmore NZ 401096 516338 Quarries Formation Sandstone
Cat Castle Stainmore NZ 401202 516397 Quarries Formation Sandstone
Sealgill Stainmore NY 397357 513208 Quarries Formation Sandstone
Westwick Stainmore NZ 408707 517205 Moor Formation Sandstone
Tinklers Stainmore NY 396977 517837 Quarry Formation Sandstone
Table 19 Safeguarded Mineral Transportation Infrastructure
Thrislington rail head. This facility is connected to the rail Weardale Railway Line-The Weardale Railway line also has the network via a small rail line connecting with the East Coast potential to be used for mineral trans-shipment. Our current view Mainline). is that the Weardale railway should be safeguarded with the proviso that safeguarding will not prejudice the use of the line for passenger traffic.
272 County Durham Plan Preferred Options County Durham Plan Preferred Options
Ferryhill-Cornforth-Raisby Quarry alignment. This rail alignment Leamside Line has the potential to connect the East Coast Mainline with Raisby Quarry.
Rail Facility at Ferryhill Station Railhead at Seaham Harbour and Port of Seaham.
Table 20 Safeguarded Mineral Processing Infrastructure
Site Name Location Operator
Todhills Brickworks Todhills Wienerberger
Coated road stone – Asphalt Plant Force Garth Quarry, High Cemex Uk Materials Ltd Force, Middleton in Teesdale
Coated road stone – Asphalt Plant Heights Quarry, Westgate Aggregate Industries Ltd
Coated road stone – Asphalt Plant Hulands Quarry, Bowes Aggregate Industries Ltd
Coated road stone – Asphalt Plant Coxhoe Quarry Tarmac
Kilns for production of calcined material, Concrete Plant and Thrislington Quarry, Tarmac Sand recovery plant Cornforth
Table 21 Safeguarded Recycled and Secondary Aggregate Sites
Site Name Location Operator
Bishop Middleham Quarry Bishop Middleham W&M Thomson
Aycliffe Quarry Aycliffe Stonegrave Aggregates
Thrislington Quarry Cornforth Tarmac
Old Quarrington Quarry Bowburn Tarmac
Heights Quarry Westgate Aggregate Industries
Hulands Quarry Near Bowes Aggregate Industries
Table 22 Safeguarded Concrete plants in County Durham
Site Location Operator
Consett Plant Main Street, Crookhall, Consett Cemex Readymix
Durham Plant Littleburn Industrial Estate, Langley Moor Cemex Readymix
Newton Aycliffe Plant Behind BSC, Off Cumbie Way, Newton Aycliffe Cemex Readymix
Ferryhill Thrislington Quarry, West Cornforth Ready Mix Concrete
Crime Rigg Quarry Durham Concrete Plant, Crime Rigg Quarry, Shadforth, Breedon Sherburn Hill
Durham Dragonville Industrial Estate, Rennys Lane, Durham Hope Construction Materials
Bishop Auckland Romanway Industrial Estate, Tindale Crescent, Bishop Hope Construction Materials Auckland
Coxhoe Coxhoe Quarry, off Station Road, Raisby Hill, Coxhoe Hope Construction Materials
County Durham Plan Preferred Options 273 County Durham Plan Preferred Options
Exempt Development within Mineral Safeguarding Areas and Minerals and Waste Safeguarding Zones
C.2 The following types of development will be viewed as exempt development and will not be considered as sterilising development within a Mineral Safeguarding Area (Policy 50) or be viewed as inappropriate development within a Minerals and Waste Safeguarding Zone (Policy 50) Applications for:
Infilling in an otherwise built up frontage within a settlement;
Householder planning applications within the curtilage of a property;
Alterations and extensions to existing buildings including applications for new or improved accesses;
'Minor' works such as gates, walls and fences;
Agricultural buildings adjacent to existing farmsteads;
Advertisement consent;
Reserved matters applications following the grant of outline planning permission;
Listed Buildings Consent and Conservation Area Consent;
Applications to remove or amend a condition attached to an existing planning permission;
Prior notifications for telecommunications development, forestry and demolition;
Works to trees or removal of hedgerows;
Outside storage;
Certificates of Lawfulness of Existing Use of Development (CLEUD); and
Certificates of Lawfulness of Proposed Use or Development (CLOPUD).
C.3 In addition to the above the following types of development will be viewed as exempt development and will not be considered as sterilising development within a Mineral Safeguarding Area (Policy 50)
Open space (although not outdoor recreation facilities such as golf courses) and allotments; and
Change of use of existing buildings.
274 County Durham Plan Preferred Options County Durham Plan Preferred Options
D Glossary of Terms
This glossary of terms defines terms used in this report:
D.1 Affordable housing: housing for sale or rent, for those whose needs are not met by the market (including housing that provides a subsidised route to home ownership and/or is for essential local workers); and which complies with one or more of the following definitions:
a) Affordable housing for rent:meets all of the following conditions: (a) the rent is set in accordance with the Government's rent policy, or is at least 20% below local market rents (including service charges where applicable); (b) the landlord is a registered provider, except where it is included as part of a Build to Rent scheme (in which case the landlord need not be a registered provider); and (c) it includes provisions to remain at an affordable price for future eligible households, or for the subsidy to be recycled for alternative affordable housing provision. For Build to Rent schemes affordable housing for rent is expected to be the normal form of affordable housing provision (and, in this context, is known as Affordable Private Rent);
b) Starter homes: is as specified in Sections 2 and 3 of the Housing and Planning Act 2016 and any secondary legislation made under these sections. The definition of a starter home should reflect the meaning set out in statute at the time of plan- preparation or decision-making. Income restrictions should be used to limit a household's eligibility to purchase a starter home to those who have maximum household incomes of £80,000 a year or less;
c) Discounted market sales housing: is that sold at a discount of at least 20% below local market value. Eligibility is determined with regard to local incomes and local house prices. Provisions should be in place to ensure housing remains at a discount for future eligible households;
d) Other affordable routes to home ownership:is housing provided for sale that provides a route to ownership for those who could not achieve home ownership through the market. It includes shared ownership, relevant equity loans, other low cost homes for sale and rent to buy (which includes a period of intermediate rent). Where public grant funding is provided, there should be provisions for the homes to remain at an affordable price for future eligible households, or for any receipts to be recycled for alternative affordable housing provision, or refunded to Government or the relevant authority specified in the funding agreement.
Aged or Veteran Trees: A tree which, because of its great age, size or condition is of exceptional value for wildlife, in the landscape, or culturally.
Aggregate: Sand, gravel, crushed rock and other bulk materials, used by the construction industry.
Air Quality Management Areas: Areas designated by local authorities because they are not likely to achieve national air quality objectives by the relevant deadlines.
Ancient Woodland: An area that has been wooded continuously since at least 1600 AD. It includes ancient semi-natural woodland and plantations on ancient woodland sites (PAWS).
Amenity: A broad concept that refers to the pleasant or satisfactory aspects of a place which add positively to its overall character and to the enjoyment of residents or visitors. For example, it encompasses human health, quality design, provision and protection of local services, local economy and the protection of the countryside, historic environment, environmental character and visual, air and noise quality. Amenity also encompasses leisure and sporting areas, such as playing fields and other open spaces used for sport.
County Durham Plan Preferred Options 275 County Durham Plan Preferred Options
Archaeological Interest: There will be archaeological interest in a heritage asset if it holds, or potentially may hold, evidence of past human activity worthy of expert investigation at some point. Heritage assets with archaeological interest are the primary source of evidence about the substance and evolution of places, and of the people and cultures that made them.
Area of Outstanding Natural Beauty (AONB): An area with statutory national landscape designation, the primary purpose of which is to conserve and enhance natural beauty. Together with National Parks, they represent the finest landscapes.
Article 4 Direction: A Direction made under the Town and Country Planning Act to remove some or all permitted development rights in an area or on a site.
Basal Permian Sand: This is a bedrock deposit of sand which is found along the base of the Magnesian Limestone Escarpment and dips to the east beneath the limestone. The resource can be used as a building and asphalting sand or combined with limestone fines to make a product suitable for concreting purposes.
Best and Most Versatile Agricultural Land: Land in grades 1, 2 and 3a of the Agricultural Land Classification.
Brownfield Land and Sites: See ‘Previously-Developed Land’.
Brownfield Land Registers: Registers of previously developed land that local planning authorities consider to be appropriate for residential development, having regard to criteria in the Town and Country Planning (Brownfield Land Registers) Regulations 2017. Local planning authorities will be able to trigger a grant of permission in principle for residential development on suitable sites in their registers where they follow the required procedures.
Built up area: The built up area is land contained within the main body of existing built development of a settlement or is within a settlement boundary defined in a Neighbourhood Plan. Areas falling outside this definition will be regarded as countryside.
Capacity (in waste context): The ability of existing facilities to deal with all the waste which occurs.
Climate Change Adaptation: Adjustments made to natural or human systems in response to the actual or anticipated impacts of climate change, to mitigate harm or exploit beneficial opportunities.
Climate Change Mitigation: Action to reduce the impact of human activity on the climate system, primarily through reducing greenhouse gas emissions.
Comparison Shopping: The provision of retail items not obtained on a frequent basis, i.e. not classified as convenience shopping (see definition below), which the purchaser will compare on the basis of price and quality before a purchase is made, e.g. clothes, fashion, gift merchandise, electrical goods (white and brown), gas cookers and furniture.
Conservation (for heritage policy): The process of maintaining and managing change to a heritage asset in a way that sustains and, where appropriate, enhances its significance.
Conservation Area: Areas of special architectural or historic interest, the character, appearance or setting of which it is desirable to preserve or enhance.
Convenience Shopping: Broadly defined as food shopping, drinks, tobacco, newspapers, magazines and confectionery, purchased regularly for relatively immediate consumption.
Countryside: See built up area.
276 County Durham Plan Preferred Options County Durham Plan Preferred Options
Crushed Rock: Hard types of rock, which have been quarried, fragmented and graded for use as aggregate.
Degraded Land: Land that has lost some degree of its natural productivity due to excessive or inappropriate exploitation resulting in a deterioration in its quality i.e. its topsoil, vegetation, and/or water resources.
Deliverable: To be considered deliverable, sites for housing should be available now, offer a suitable location for development now, and be achievable with a realistic prospect that housing will be delivered on the site within five years. Small sites, and sites with detailed planning permission, should be considered deliverable until permission expires, unless there is clear evidence that homes will not be delivered within five years (e.g. they are no longer viable, there is no longer a demand for the type of units or sites have long term phasing plans). Sites with outline planning permission, permission in principle, allocated in the development plan or identified on a brownfield register should only be considered deliverable where there is clear evidence that housing completions will begin on site within five years.
Density: In the case of residential development, a measurement of either the number of habitable rooms per hectare or the number of dwellings per hectare.
Derelict Land: Land that has become damaged by industrial or other development and beyond beneficial use without treatment. Treatment may include demolition and levelling. The land may have been abandoned or have unoccupied buildings in an advanced state of disrepair.
Designated Heritage Asset: A World Heritage Site, Scheduled Monument, Listed Building, Protected Wreck Site, Registered Park and Garden, Registered Battlefield or Conservation Area designated under the relevant legislation.
Development: Development means the carrying out of building, engineering, mining or other operations in, on, over or under land, or the making of any material change in the use of any buildings or other land.
Development Management: The process whereby a local planning authority manages, shapes, and considers the merits of a planning application and whether it should be given permission with regard to the development plan.
Development Plan: Is defined in section 38 of the Planning and Compulsory Purchase Act 2004, and includes adopted local plans, neighbourhood plans that have been made and published spatial development strategies.
Economic Development: Development, including those within the B Use Classes, public and community uses and main town centre uses (but excluding housing development).
Edge of Centre: For retail purposes, a location that is well connected to, and up to 300 metres from the primary shopping area. For all other main town centre uses, a location within 300 metres of a town centre boundary. For office development, this includes locations outside the town centre but within 500 metres of a public transport interchange. In determining whether a site falls within the definition of edge of centre, account should be taken of local circumstances.
Employment Land: Land identified for business, general industrial, and storage and distribution development as defined by Classes B1, B2 and B8 of the Use Classes Order. It does not include land for retail development.
County Durham Plan Preferred Options 277 County Durham Plan Preferred Options
Employment Land Review (ELR): The study will review current employment land supply and look to identify the appropriate type, quantity and location of employment land which will be capable of accommodating the economic growth trajectories.
Environment Agency: Government body with responsibility for issues relating to flood risk; pollution and contamination; and waste licensing.
Equality Impact Assessment (EqIA): Seeks to ensure that plans will promote equality and assess any risk of discrimination before policies are introduced or changed. The process checks that reasonable steps are being taken to tackle disadvantage and meet the diverse needs for all communities.
European Site: This includes candidate Special Areas of Conservation, Sites of Community Importance, Special Areas of Conservation and Special Protection Areas, and is defined in regulation 8 of the Conservation of Habitats and Species Regulations 2010.
Evidence Base: The information and data gathered by local authorities to justify the “soundness” of the policy approach set out in Local Plans, including physical, economic, and social characteristics of an area.
Examination in Public: The process by which an Independent Planning Inspector publicly examines a submitted development plan,together with any public representations, before issuing a report.
Fluvial or Glacial Sand: These are superficial deposits of sand laid down in the last two million years. Once extracted the resource is often suitable for concreting sand.
Geodiversity: The range of rocks, minerals, fossils, soils and landforms.
Green Belt (not to be confused with the term ‘greenfield’): The fundamental aim of Green Belt policy is to prevent urban sprawl by keeping land permanently open; the essential characteristics of Green Belts are their openness and their permanence. Green Belt serves five purposes: a) to check the unrestricted sprawl of large built-up areas; b) to prevent neighbouring towns merging into one another; c) to assist in safeguarding the countryside from encroachment; d) to preserve the setting and special character of historic towns; and e) to assist in urban regeneration, by encouraging the recycling of derelict and other urban land.
Greenfield Land or Site: Land (or a defined site) which has never been built on before or where the remains of any structure or activity have blended into the landscape over time.
Green Infrastructure: A network of multi-functional green space, urban and rural, which is capable of delivering a wide range of environmental and quality of life benefits for local communities.
Habitats Regulation Assessment: An assessment of the Plan's likely impact on wildlife habitats of European importance. Also known as an 'Appropriate Assessment'.
Hazardous Waste: Material or substances potentially harmful to health or the environment, including oils and asbestos, batteries, and fluorescent lighting.
Hectare: A metric unit to measure land. One hectare equals 2.47 acres or 10,000 square metres. One hectare of land can often accommodate 30 houses.
Heritage asset: A building, monument, site, place, area or landscape identified as having a degree of significance meriting consideration in planning decisions, because of its heritage interest. It includes designated heritage assets and assets identified by the local planning authority (including local listing).
278 County Durham Plan Preferred Options County Durham Plan Preferred Options
Heritage Coast: An area identified to focus attention on managing the best stretches of undeveloped coast, where the needs of conservation, pressures of recreation and problems of pollution need to be considered in a co-ordinated way.
Historic England: Government body with responsibility for all aspects of protecting and promoting the historic environment.
Inert waste: Waste that does not cause contamination or danger to human health by decomposing or react physically, chemically or biologically (e.g. Rubble, glass, concrete).
Infrastructure Delivery Plan (IDP): Identify what physical, social and green infrastructure is needed, such as new roads, schools and open spaces, who will deliver this and when.
Listed Building: A building of special architectural or historic interest. Graded I (highest quality), II* or II. Listing includesthe interior as well as the exterior of the building, and includes anybuildings or permanent structures within its curtilage which have formedpart of the land since before 1 July 1948. Historic England isresponsible for designating buildings for listing in England.
Local Aggregate Assessment: An annual assessment of the demand for and supply of aggregates in a mineral planning authority’s area. A mineral planning authority must either prepare a Local Aggregate Assessment on its own or jointly with one or more other minerals planning authority if it wishes.
Local Authority Collected Waste (LACW): All waste collected by the local authority. This includes both non-municipal waste fractions (such as construction and demolition waste if collected by the Local Authority) and waste which is 'similar in nature and composition' (such as business waste) as required by the Landfill Directive (LACW is the definition that will be used in Government statistical publications, which previously referred to municipal waste).
Local enterprise partnership: A body, designated by the Secretary of State for Housing, Communities and Local Government, established for the purpose of creating or improving the conditions for economic growth in an area.
Local housing need: the number of homes identified as being needed through the application of the standard method set out in national planning guidance, or a justified alternative approach.
Local Strategic Partnership (LSP): An overall partnership of public, private, community and voluntary organisations within a local authority area, with the objective of improving people’s quality of life. The County Durham Partnership is the LSP for County Durham and it is responsible for the production of the Sustainable Community Strategy (as referred to below).
Main Town Centre Uses: Retail development (including warehouse clubs and factory outlet centres); leisure, entertainment and more intensive sport and recreation uses (including cinemas, restaurants, drive-through restaurants, bars and pubs, night-clubs, casinos, health and fitness centres, indoor bowling centres, and bingo halls); offices; and arts, culture and tourism development (including theatres, museums, galleries and concert halls, hotels and conference facilities).
Major Development: For housing, development where 10 or more homes will be provided, or the site has an area of 0.5 hectares or more. For non-residential development it means additional floorspace of 1,000m2 or more, or a site of 1 hectare or more, or as otherwise provided in the Town and Country Planning (Development Management Procedure) (England) Order 2015.
Material Consideration: A material consideration is a matter which the decision maker must take into account when assessing a planning application.
County Durham Plan Preferred Options 279 County Durham Plan Preferred Options
Mineral Resource: A potential mineral deposit where the quality and quantity of material present has not been tested.
Municipal Waste: Waste from households as well as other waste which, because of its nature or composition, is similar to waste from households. This includes a significant amount of waste that is generated by businesses and not handled by local authorities.
Natural England: Government advisors on nature conservation, biodiversity and landscape in England.
Neighbourhood Plans: A plan prepared by a Parish or Town Council or Neighbourhood Forum for a designated neighbourhood area.
Non-Designated Heritage Assets: Buildings, monuments, sites, places, areas or landscapes identified as having a degree of significance meriting consideration in planning decisions but which are not formally designated heritage assets.
Non-Hazardous Waste: Consists of Municipal Waste (formerly MSW) and Commercial and Industrial (C&I) waste. 'Municipal waste' traditionally meant waste managed by a local authority. The Landfill Directive defines municipal waste as waste from households as well as other waste which, because of its nature or composition, is similar to waste from households. This includes a significant amount of waste that is generated by businesses and not handled by local authorities.
Non-Strategic Minerals and Waste Sites: These are sites which are allocated in the Minerals and Waste Policies and Allocations Document. They are not fundamental to the delivery of the strategy of the Plan for either minerals or waste. For example, all surface mined coal sites and natural building and roofing stone sites would not be considered fundamental to the delivery of the strategy of the Plan for minerals or waste.
Objectively Assessed Need: An assessment of the future amount of housing needed.
Older people: People over or approaching retirement age, including the active, newly-retired through to the very frail elderly, whose housing needs can encompass accessible, adaptable general needs housing through to the full range of retirement and specialised housing for those with support or care needs.
Open Space: All open space of public value, including not just land, but also areas of water (such as rivers, canals, lakes and reservoirs) which offer important opportunities for sport and recreation and can act as a visual amenity.
Permitted Reserves: Mineral deposits with the benefit of planning permission for extraction.
Permission in principle: A form of planning consent granted by a local planning authority which establishes that a site is suitable for a specified amount of housing-led development in principle. Following a grant of permission in principle, the site must receive a grant of technical details consent before development can proceed.
Planning condition: A condition imposed on a grant of planning permission (in accordance with the Town and Country Planning Act 1990) or a condition included in a Local Development Order or Neighbourhood Development Order.
Planning obligation: A legal agreement entered into under section 106 of the Town and Country Planning Act 1990 to mitigate the impacts of a development proposal.
Planning Practice Guidance (PPG): The Government's guidance on planning issues.
280 County Durham Plan Preferred Options County Durham Plan Preferred Options
Previously Developed Land: Land which is or was occupied by a permanent structure, including the curtilage of the developed land (although it should not be assumed that the whole of the curtilage should be developed) and any associated fixed surface infrastructure. This excludes: land that is or has been occupied by agricultural or forestry buildings; land that has been developed for minerals extraction or waste disposal by landfill where provision for restoration has been made through development control procedures; land in built-up areas such as residential gardens, parks, recreation grounds and allotments; and land that was previously-developed but where the remains of the permanent structure or fixed surface structure have blended into the landscape.
Primary shopping area: Defined area where retail development is concentrated (generally comprising the primary and those secondary frontages which are adjoining and closely related to the primary shopping frontage).
Primary and secondary frontages: Primary frontages are likely to include a high proportion of retail uses which may include food, drinks, clothing and household goods. Secondary frontages provide greater opportunities for a diversity of uses such as restaurants, cinemas and businesses.
Recovery: Value can be recovered from waste by recovering materials through recycling, composting or recovery of energy.
Registered Providers: Social rented housing is owned by registered providers.
Renewable and Low Carbon Energy: Includes energy for heating and cooling as well as generating electricity. Renewable energy covers those energy flows that occur naturally and repeatedly in the environment – from the wind, the fall of water, the movement of the oceans, from the sun and also from biomass and deep geothermal heat. Low carbon technologies are those that can help reduce emissions (compared to conventional use of fossil fuels).
Residual Waste: Waste remaining after materials for re-use, recycling and composting have been removed.
Rural Exception Sites: Small sites used for affordable housing in perpetuity where sites would not normally be used for housing. Rural exception sites seek to address the needs of the local community by accommodating households who are either current residents or have an existing family or employment connection. A proportion of market homes may be allowed on the site at the local authority’s discretion, for example where essential to enable the delivery of affordable units without grant funding.
Safeguarded Aerodrome: Certain civil aerodromes, selected on the basis of their importance to the national air transport system, are officially safeguarded, in order to ensure that their operation and development are not inhibited by buildings, structures, erections or works which infringe protected surfaces, obscure runway approach lights or have the potential to impair the performance of aerodrome navigation aids, radio aids or telecommunication systems; by lighting which has the potential to distract pilots; or by developments which have the potential to increase the number of birds or the bird hazard risk.
Setting of a heritage asset: The surroundings in which a heritage asset is experienced. Its extent is not fixed and may change as the asset and its surroundings evolve. Elements of a setting may make a positive or negative contribution to the significance of an asset, may affect the ability to appreciate that significance or may be neutral.
County Durham Plan Preferred Options 281 County Durham Plan Preferred Options
Significance (for heritage policy): The value of a heritage asset to this and future generations because of its heritage interest. The interest may be archaeological, architectural, artistic or historic. Significance derives not only from a heritage asset’s physical presence, but also from its setting. For World Heritage Sites, the cultural value described within each site’s Statement of Outstanding Universal Value forms part of its significance.
Statutory Undertakers / Statutory Utilities: Providers of essential services such as gas, electricity, water or telecommunications.
Strategic Environmental Assessment (SEA): A procedure (set out in the Environmental Assessment of Plans and Programmes Regulations 2004) which requires the formal environmental assessment of certain plans and programmes which are likely to have significant effects on the environment including those in the field of planning and land use, which complies with the EU Directive 2001/42/EC.
Strategic Mineral and Waste Sites: These are sites which are allocated in the Local Plan by virtue that they are fundamental to the delivery of the strategy of the Plan for minerals and waste. Such sites would make a major contribution to meeting the established need for a particular mineral or for the treatment of a particular waste stream, for example by providing a 25 year stock or more of permitted reserves of brick making raw materials for a particular brick works.
Sustainable Travel / Sustainable Transport: Often meaning walking, cycling and public transport (and in some circumstances “car sharing”), which is considered to be less damaging to the environment and which contributes less to traffic congestion than one-person car journeys.
Sustainability Appraisal (including Environmental Appraisal): The process of weighing and assessing all the policies in a development plan document for its global, national and local implications. (See also Strategic Environmental Assessment).
Town centre: Area defined on the local authority’s policies map, including the primary shopping area and areas predominantly occupied by main town centre uses within or adjacent to the primary shopping area. References to town centres or centres apply to city centres, town centres, district centres and local centres but exclude small parades of shops of purely neighbourhood significance. Unless they are identified as centres in the development plan, existing out-of-centre developments, comprising or including main town centre uses, do not constitute town centres.
Transport Assessment: A comprehensive and systematic process that sets out transport issues relating to a proposed development. It identifies measures required to improve accessibility and safety for all modes of travel, particularly for alternatives to the car such as walking, cycling and public transport and measures that will be needed deal to with the anticipated transport impacts of the development.
Travel Plan: A travel plan aims to promote sustainable travel choices (for example cycling) as an alternative to single occupancy car journeys that may impact negatively on the environment, congestion and road safety.
Waste Hierarchy: A framework for securing a sustainable approach to waste management. Wherever possible, waste should be minimised. If waste cannot be avoided, then it should be: re-used; recycled or composting; or converted to energy; and finally landfill disposal.
Windfall Sites: Sites not specifically identified in the local plan.
World Heritage Site: A cultural or natural site of outstanding universal value which is so exceptional as to transcend national boundaries and to be of common importance for present and future generations.
282 County Durham Plan Preferred Options